Smart Planning Consortium Update
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Smart Planning Consortium Update - Chapters and Public Input Meetings
DATE: September 18, 2012
Planning Services Manager Laura Carstens is transmitting an update on the work of the
Dubuque County Smart Planning Consortium on eight draft chapters of the Dubuque
County Regional Smart Plan for sustainable development and upcoming public input
meetings.
/7AAh kt1&1
Michael C. Van Milligen
MCVM:jh
Attachment
cc: Barry Lindahl, City Attorney
Cindy Steinhauser, Assistant City Manager
Teri Goodmann, Assistant City Manager
Laura Carstens, Planning Services Manager
Masterpiece on the Mississippi
Dubuque
All AmericaCity
2012
TO: Michael Van Milligen, City Manager
FROM: Laura Carstens, Planning Services Manager"
SUBJECT: Smart Planning Consortium Update — Chapters and Public Input Meetings
DATE: September 13, 2012
INTRODUCTION
This memo provides an update on the work of the Dubuque County Smart Planning
Consortium on eight draft chapters of Dubuque County Regional Smart Plan for
sustainable development and upcoming public input meetings.
DISCUSSION
The Dubuque County Smart Planning Consortium, consisting of Dubuque County,
Dubuque Soil and Water Conservation District, and the cities of Asbury, Cascade,
Dubuque, Dyersville, Epworth, Farley and Peosta, held a series of public meetings in
November and December 2011 to gather input on the first four draft chapters of the
Dubuque County Smart Plan -- Community Facilities, Land Use, Transportation, and
Watershed Planning -- as well as on the Future Land Use Map.
The Smart Planning Consortium is holding two more series of public meetings in each
city and the county to gather input on the remaining eight chapters of the Smart Plan.
In August, the Consortium solicited input on the Housing, Economic Development,
Hazards, and Public Infrastructure & Utilities chapters. The City of Dubuque hosted a
public meeting on these four chapters during the Long Range Planning Advisory
Commission's regular meeting on August 15. These four chapters are enclosed.
In September, the Consortium will solicit input on the Agriculture & Natural Resources,
Issues & Opportunities, Intergovernmental Collaboration, and Community Character
chapters. The City of Dubuque will host a public meeting on these four chapters during
the Long Range Planning Advisory Commission's regular meeting on September 19 at
5:30 p.m. in the Council Chambers. These four additional chapters also are enclosed.
A final public input meeting to gather Implementation ideas for the Smart Plan will be
held on October 10 at the Fire Training Center, 14928 Public Safety Way, at 7:00 p.m.
Smart Planning Consortium Update
Page 2
RECOMMENDATION
Staff recommends that the City Council review the enclosed information, and then
provide any feedback to the Consortium.
Enclosures
F: \USERS \LCARSTEN \WP \Smart Planning Grant \Updates to LRPAC CC \Smart Planning Consortium update to City Council 09 13
12.doc
DUBUQUE COUNTY SMART PLAN
Housing
Housing is a basic need for all human beings, and is an important factor in community planning efforts.
Housing is many homeowners largest source of personal wealth and is usually their largest expenditure.
According to the US Bureau of Labor Statistics, in 2010 housing accounted for more than 35% of
consumer spending.' Housing also affects personal behavior. Where people live affects who their
friends are, where their children go to school, job opportunities, and many other aspects of daily life.
Housing has a large impact on individual quality of life within the region.
Housing is one of local government's most important issues. In urban areas, housing can account for
50% of land uses, and residential property tax revenues make up a large portion of local government
budgets. Because of its high level of importance, housing affects all other planning elements listed in
this plan. Public services people require, how much those services cost, and who should pay for them all
depend on where, how, and at what densities people live. Of the services provided by local
governments, transportation is one of the most impacted by housing. Individual travel behavior is
greatly affected by where people live, and as a result, housing and transportation planning must be
closely coordinated.
Housing serves an important role in the regional economy, as it affects employers' ability to attract and
retain good quality employees, and also creates jobs. If combined housing and transportation costs are
too high, employers may lose employees to other regions. The housing sector also employs many
workers within the region. Builders, lenders, construction workers, and real estate brokers are an
important part of the regional economy.
Residential development can greatly affect the natural environment. A sustainable community needs to
balance needs for new housing with environmental protections. Low impact development, conservation
subdivisions, and other green building techniques can help mitigate impact of residential development
on the natural environment.
The objective of this chapter is to encourage a diverse housing stock that serves people at all income
levels and at all stages of life. Good- quality housing is the foundation of a stable sustainable
community. To be effective, community planning efforts, including sustainability efforts, must be
integrated into a community's housing policies.
Inventory of Existing Housing
The US Census Bureau provides a wide variety of data on housing through the decennial census and the
American Community Survey (ACS). The following charts are selections from the census that depict the
most important aspects of the Dubuque County housing market.
1 " Consumer Expenditures 2010" BLS.gov. 27 Sept. 2011. U.S Bureau of Labor Statistics. 1 Dec.
2011.httb://www.b1s.govinews.releaseicesan.nr0.htm
1
DUBUQUE COUNTY SMART PLAN
Housing
Housing is a basic need for all human beings, and is an important factor in community planning efforts.
Housing is many homeowners largest source of personal wealth and is usually their largest expenditure.
According to the US Bureau of Labor Statistics, in 2010 housing accounted for more than 35% of
consumer spending.' Housing also affects personal behavior. Where people live affects who their
friends are, where their children go to school, job opportunities, and many other aspects of daily life.
Housing has a large impact on individual quality of life within the region.
Housing is one of local government's most important issues. In urban areas, housing can account for
50% of land uses, and residential property tax revenues make up a large portion of local government
budgets. Because of its high level of importance, housing affects all other planning elements listed in
this plan. Public services people require, how much those services cost, and who should pay for them all
depend on where, how, and at what densities people live. Of the services provided by local
governments, transportation is one of the most impacted by housing. Individual travel behavior is
greatly affected by where people live, and as a result, housing and transportation planning must be
closely coordinated.
Housing serves an important role in the regional economy, as it affects employers' ability to attract and
retain good quality employees, and also creates jobs. If combined housing and transportation costs are
too high, employers may lose employees to other regions. The housing sector also employs many
workers within the region. Builders, lenders, construction workers, and real estate brokers are an
important part of the regional economy.
Residential development can greatly affect the natural environment. A sustainable community needs to
balance needs for new housing with environmental protections. Low impact development, conservation
subdivisions, and other green building techniques can help mitigate impact of residential development
on the natural environment.
The objective of this chapter is to encourage a diverse housing stock that serves people at all income
levels and at all stages of life. Good - quality housing is the foundation of a stable sustainable
community. To be effective, community planning efforts, including sustainability efforts, must be
integrated into a community's housing policies.
Inventory of Existing Housing
The US Census Bureau provides a wide variety of data on housing through the decennial census and the
American Community Survey (ACS). The following charts are selections from the census that depict the
most important aspects of the Dubuque County housing market.
1 " Consumer Expenditures 2010" BLS.gov. 27 Sept. 2011. U.S Bureau of Labor Statistics. 1 Dec.
2011.http://www.b1s.govinews.releaseicesan.nr0.htm
1
DUBUQUE COUNTY SMART PLAN
Housing
Dubuque County's vacancy rate is lower than state and national rates. In general, the Dubuque County
housing market has weathered the housing crisis better than many markets in the country where large
numbers of foreclosures have driven vacancy rates up.
Figure 1
Housing Tenure
Dubuque 1
County
Iowa
US
0% 20% 40% 60% 80% 100%
• Owner - occupied • Renter - occupied
Source: 2010 American Community Survey 1 -Year Estimates
Dubuque County residents are more likely to own their house. According to the housing tenure data,
shown in Figure 1, renters account for 25% of the occupied housing units in Dubuque County. Nationally
renters make up about 35 %.
Dubuque County Housing Market
When compared with the rest of the US, the Dubuque County housing market has remained relatively
stable through the recent economic downturn. According to research published by the mortgage
insurance firm PMI, Dubuque County was among the least risky places in the country to buy a home.
PMI's Housing Appreciation Risk Index (HARI) measures the probability that house prices will be lower in
two years. According to the HARI, Dubuque County homes had a 7.6% chance of falling in the next two
years. Dubuque's score is well below the national average of 43.3% and the riskiest regions in Nevada,
Arizona, Florida, and California which have HARI scores between 80% and 90 %. According to PMI, "In
general, the states with the lowest scores are in the Great Plains — especially North Dakota, Iowa, and
Nebraska. These states did not experience large housing booms, have low unemployment and
foreclosure rates, and are very affordable.i2 Figure 2 shows the geographic distribution of Housing Price
Risk for metropolitan areas.
2 Berson, David W. et al. "Economic and Real Estate Trends" PMI Mortgage Insurance Co. 2011, http: / /www.pmi-
us.com /PDF /g3 11 r mi eret.html
2
DUBUQUE COUNTY SMART PLAN
Housing
Figure 2
.�,I ,
'ih,
'0.
t rte.
3 _
i i- l H
LEGEND
[ 0.0`% to 10.0%
IN 10.0% to 30.0%
0 30 0% to 50.0%
Ill 50.0% to 70.0%
70.0 °„ to 100.096
Source: PMI Mortgage Insurance Co.3
Housing Affordability
Housing costs as a percent of household income is a generally used measure of housing affordability. As
a rule of thumb, spending Tess than 30% of income on housing is generally considered to be affordable.
Households spending more than 30% are considered to be cost burdened and may have difficulty
affording other necessities such as food, clothing, transportation, and medical care. Figures 3 and 4
show that Dubuque County is a relatively affordable region for homeowners compared to the rest of the
country and the state of Iowa. According to 2010 ACS data, 75% of Dubuque County residents with a
3 Berson, David W. et al.
3
DUBUQUE COUNTY SMART PLAN
Housing
mortgage and 89% of residents without a mortgage are paying less than 30% of their annual income
towards housing.
Figure 3
Percent Units with Mortgage
Monthly Owner Costs as a Percent of HH Income
60%
50%
40% --
30%
20 %-
10% —
0%
<20% 20 %- 25 %- 30 %- >35%
25% 30% 35%
Percent of HH Income
• US
MI Iowa
[1Dubuque
County
Source: 2010 American Community Survey 1 -Year Estimates
Figure 4
Percent Units Without Mortgage
Monthly Owner Costs as a Percent of HH Income
50%
40%
30%
20%
10%
0%
1111_1 „Inv,
>10% 10 %- 15 %- 20 %- 25 %- 30 %- >35%
15% 20% 25% 30% 35%
Percent of HH Income
• US
III Iowa
11Dubuque
County
Source: 2010 American Community Survey 1 -Year Estimates
4
DUBUQUE COUNTY SMART PLAN
Housing
While owner occupied housing may be relatively affordable in Dubuque County, the same cannot be
said about renter occupied housing. Figure 5 shows gross rent' of as percent of household income. The
chart shows that housing affordability rates are similar to state and national rates: 48% of Dubuque
County households pay 30% or more of their income towards housing.
Figure 5
Percent Renter Occupied Units
50%
45%
40%
35%
30%
25%
20%
15%
10%
5%
0%
Gross Rent as a Percent of HH Income
< 15% 15% - 20% - 25% - 30% - >35%
19% 24% 29% 34%
Percent of HH Income
Geography
(Median
Home Value)
® Us
■ Iowa
[1 Dubuque
County
Source: 2010 American Community Survey 1 -Year Estimates
See the end of the chapter for additional city data for housing cost as a percentage of household
income.
Combined Housing and Transportation Costs
Over the past fifty years many people have chosen to leave urban areas for rural and suburban
communities as a way to reduce housing costs. For the most part home price are lower in suburban
areas when compared to urban areas. However, on the suburban and rural areas the distance is greater
between work, school, and other daily needs. The increased distance results in residents spending
increased time and money on transportation. According to a report entitled Penny Wise, Pound Fuelish
produced by the Center for Neighborhood Technology (CNT), the increased transportation costs
associated with living in the suburbs can outweigh the savings on home costs and residents of these
communities are more vulnerable to fluctuations in gas prices.5 CNT has developed Housing and
4 Gross Rent. The amount of the contract rent plus the estimated average monthly cost of utilities (electricity, gas,
and water and sewer) and fuels (oil, coal, kerosene, wood, etc.) if these are paid for by the renter (or paid for the
renter by someone else).
5 "Penny Wise, Pound Fuelish" The Center for Neighborhood Technology, March 2010,
http: / /www.cnt.org /repository /pwpf.pdf
5
DUBUQUE COUNTY SMART PLAN
Housing
Transportation cost index (H +T Index) that allows users to compare the traditional view of affordability
with the new view including transportation costs. According to the Index in all cities, many distant
suburbs are less affordable than they appear. The H +T Index takes the traditional 30% of household
income measure for housing and adds an additional 15% for transportation resulting in a combined
affordability measure of 45 %.
H +T Index results for Dubuque County are displayed in Figure 6. In Figure 6, the traditional 30%
affordability measure is displayed on the left and the 45% H +T threshold is displayed on the right.
According to the traditional measure 75% of Dubuque County residents are living in affordable housing.
However, according to the H +T measure, 70% of residents pay more than 45% in housing and
transportation costs and only 30% are paying less than 45 %. The maps in Figure 6 display the
geographic distribution of the housing cost index and the H +T index by census block. According to the
H +T index the affordable areas of the county are the urban areas that are close to work, school, and
services and have access to public transit.
Figure 6
Region: Dubuque, IA
Typical Household: Regional Median income: 339,582 Size: 3.0 People Commuters:1.1 Workers
. Region
Housing Costs - % Income
Housing Costs - % Income
CrHeria
No Data Available
Less than 3056
■30% and Greater
Map Total
(. Ghoog.
Population
Focus: 1 Map Area .
Display: Population Statistics ♦ cnenee_
Housing and Transportation Costs - % Income
Housing and Transportation Costs - % Income
Percent of Population Criteria Population
0% No Data Available
88.849 74.8% Less than 45%
22,494 29.2% ■ 45% and Greater
89.143 100% Map Total
Lafayette county
28.947
83.196
89.143
(. ch.na.
Percent of Population
0%
29.1%
70.9%
100%
county
0a yrl:
1` .i0 @2910
Source: Center for Neighborhood Technology, 2012.
Federal Housing Programs
6
DUBUQUE COUNTY SMART PLAN
Housing
The federal government has created several programs to help those individuals that are cost burdened
by housing. Many of these programs operate under the US Department of Housing and Urban
Development (HUD). HUD is the primary resource for housing related issues at the federal level. HUD's
mission is to "to create strong, sustainable, inclusive communities and quality affordable homes for all.
HUD is working to strengthen the housing market to bolster the economy and protect consumers; meet
the need for quality affordable rental homes: utilize housing as a platform for improving quality of life;
build inclusive and sustainable communities free from discrimination; and transform the way HUD does
business.i6
Section 8 Housing Choice Voucher
The housing choice voucher program is the federal government's major program for assisting very low -
income families, the elderly, and persons with disabilities to afford decent, safe, and sanitary housing in
the private market. Since housing assistance is provided on behalf of the family or individual,
participants are able to find their own housing, including single - family homes, townhouses and
apartments. The participant is free to choose any housing that meets the requirements of the program
and is not limited to units located in subsidized housing projects.
Housing choice vouchers are administered locally by public housing agencies (PHAs). The PHAs receive
federal funds from the HUD to administer the voucher program. A family that is issued a housing
voucher is responsible for finding a suitable housing unit of the family's choice where the owner agrees
to rent under the program. This unit may include the family's present residence. Rental units must meet
minimum standards of health and safety, as determined by the PHA. A housing subsidy is paid to the
landlord directly by the PHA on behalf of the participating family. The family then pays the difference
between the actual rent charged by the landlord and the amount subsidized by the program. Under
certain circumstances, if authorized by the PHA, a family may use its voucher to purchase a modest
home.
Public Housing
Public housing was established to provide decent and safe rental housing for eligible low- income
families, the elderly, and persons with disabilities. Public housing comes in all sizes and types, from
scattered single family houses to high -rise apartments. There are approximately 1.2 million households
living in public housing units, managed by some 3,300 local Housing Agencies (HAs) nation wide. HUD
administers federal aid to HAs that manage the housing for low- income residents at rents they can
afford. HUD furnishes technical and professional assistance in planning, developing and managing these
developments.
Dubuque County Housing Agencies
6 "Mission" HUD.gov. Department of Housing and Urban Development. 1 Dec. 2011
http://portal.hud.gov/hudportal/HUD?src=/aboutimission.
7
DUBUQUE COUNTY SMART PLAN
Housing
HUD works with local housing agencies to implement many of their programs. The City of Dubuque
Housing and Community Development Department and the Eastern Iowa Regional Housing Authority
work with HUD and the State of Iowa to assist Dubuque County residents with their housing needs.
City of Dubuque Housing and Community Development Department
The City of Dubuque Housing and Community Development (HCD) Department coordinates the efforts
of a number of program areas to ensure residents in the City of Dubuque receive safe and affordable
housing and to provide a more livable community.
The HCD department is responsible for administering and coordinating activities relating to the use of
Community Development . Block Grant (CDBG) funds. Each year the City of Dubuque receives
approximately $1.2 million in federal CDBG funds from HUD. The funds are used for eligible activities in
the areas of housing, economic development, neighborhood and public services, public facilities, and
planning /administration.
The City of Dubuque's 7,600 rental units are periodically inspected by the HCD department for
compliance with the Housing Code and to ensure that the units provide decent and safe rental housing.
Each rental unit must be annually licensed and an annual fee is charged. All owners are required to
comply with these requirements. The HCD department maintains an inventory of all licensed rental
units, issues license applications, and receives all fees.
The Lead Hazard Reduction Program provides for the administration of a HUD funded forgivable loan for
lead hazard reduction by providing financial assistance to low- and moderate- income homeowners and
rental property owners to reduce or eliminate lead -based paint hazards in their properties. The program
is specifically targeted to assist families with children under the age of six.
The Rental Assistance, or Section 8, Program receives federal funding to provide Housing Choice
Vouchers to assist 900 households with rent payment assistance in the City of Dubuque. Individuals and
families wishing to participate fill out a rental application, submit to a background check, and after
approval, are issued a Housing Choice Voucher they may use at a rental unit of their choosing. If the
landlord of the rental unit agrees to lease to the household under the Housing Choice Voucher Program
and the unit is approved by HCD department, then the Housing Authority will make monthly rental
assistance payments to the landlord. Generally, participating households pay about 30% of their
monthly adjusted income towards their rent. While receiving rental assistance, Section 8 participants
have the opportunity to engage in services and programming to develop their skills and become self -
sufficient.
The Shelter Plus Care (S +C) Program provides rental assistance for homeless persons with disabilities in
connection with supportive services funded from sources throughout the community through other
agencies and programs. The City of Dubuque has received a five -year grant from HUD to operate a
Sponsor -based Rental Assistance (SRA) Program through the Shelter Plus Care. The City has entered into
a subcontract with a nonprofit local organization, Project Concern, to provide rental assistance, screen
8
DUBUQUE COUNTY SMART PLAN
Housing
prospective participants, and perform assessments of client's needs. Project Concern leases the units to
be occupied by the participants.
The Homelessness Prevention and Rapid Re- Housing Program (HPRP) is to assist persons and families
who are currently housed, but who are at risk of becoming homeless and may need temporary rent or
utility assistance; and persons and households who are currently homeless and need temporary
assistance in order to find housing and stabilize their living situation.
Eastern Iowa Regional Housing Authority (EIRHA)
EIRHA was established in 1978 to meet the housing needs of low and moderate income families and the
elderly. EIHRA serves Cedar, Clinton, Delaware, Dubuque, Jackson, and Jones Counties in Eastern Iowa
excluding the cities of Clinton and Dubuque. EIRHA has a contract with HUD to serve as many families as
possible using their calendar year budget for Housing Assistance Payments (HAP) through the Section 8
program.
EIRHA has an annual contributions contract to assist up to 883 households, within its budget authority,
with rental assistance in the region through Housing Choice Vouchers (HCV). The participating family
chooses a decent, safe, and sanitary rental unit in which to reside. If the landlord agrees to lease the unit
to the household under the Section 8 HCV Program, and EIRHA approves the rental unit, EIRHA will
make monthly rental payments to the landlord to help the household pay their rent each month.
Participating households pay a minimum of 30% of their adjusted income for rent and utilities or $50,
whichever is greater.
EIRHA owns and manages 164 rental units in Dubuque, Jackson, Delaware, and Clinton Counties. These
Public Housing units consist of apartments, duplexes, and single family homes to provide housing for
low- income families, seniors, and persons with disabilities. Participants in the program pay a minimum
of 30% of their adjusted income toward rent and utilities or $50, whichever is greater. Payments are
made directly to EIRHA on the first of each month.
The Eastern Iowa Regional Housing Corporation (EIRHC) is a subsidiary of EIRHA and was established in
1990. It is organized as a not - for - profit under the provisions of Chapter 504A of the Iowa Code and
serves six counties: Cedar, Clinton, Delaware, Dubuque, Jackson, and Jones Counties in Eastern Iowa.
The purpose of EIRHC is to promote the general social welfare of eligible occupants of rental housing as
determined by the US Department of Agriculture (USDA), Iowa Finance Authority (IFA), and Iowa
Economic Development Authority (IEDA) regulations, without regard to race, color, religion, creed or
national origin; to acquire, construct, improve, and operate any real or personal property or interest or
rights. EIRHC owns and manages 10 elderly and /or disabled 1 bedroom rental units: six in Grand Mound,
Iowa, and four in Worthington, Iowa. Rental assistance is financed by USDA for these units.
The Eastern Iowa Development Corporation (EIDC) is a for - profit entity and a wholly owned subsidiary of
EIRHC. The EIDC was formed to serve as the general partner in all Low Income Housing Tax Credit
9
DUBUQUE COUNTY SMART PLAN
Housing
(LIHTC) projects. The Peosta Evergreen Meadows (32 units) and Asbury Meadows (24 units) properties
resulted from this formation
Sustainable Design
To encourage a more sustainable region, the Dubuque Smart Plan encourages green building strategies
for residential development including: public health, energy efficiency, water conservation, smart
locations, operational savings, and sustainable building practices. These strategies enhance affordable
housing, community facilities, town centers, and communities as a whole.
In addition to increasing resource efficiency and reducing environmental impacts, green building
strategies can yield cost savings through long -term reduction in operating expenses. The benefits
include improved energy performance and comfort, a healthier indoor environment, increased
durability of building components, and simplified maintenance requirements that can lead to financial
efficiencies for property managers and owners. Green building practices improve the economics of
managing affordable housing, community facilities, and Main Street businesses while enhancing quality
of life for residents, visitors and employees. When green building practices guide the location of our
buildings — placing homes, community facilities and businesses near community amenities such as
public transportation to create walkable, livable neighborhoods — the benefits for citizens and
communities expand to include fewer sprawl - related transportation impacts. Housing built using the
green building strategies must be cost effective to build, and durable and practical to maintain. In
addition, the principles work together to help produce green buildings that, result in a high - quality,
healthy living and working environment, lower utility costs, enhance connections to nature, protect the
environment by conserving energy, water, materials and other resources, and advance the health of
local and regional ecosystems.
The City of Dubuque's Green and Healthy Homes Initiative (GHHI) is designed to address home -based
environmental health hazards and energy efficiency issues with integrated health, safety, lead hazards
reduction, energy efficiency and weatherization interventions in low -to- moderate income homes. The
City of Dubuque is currently seeking funding to implement the GHHI within the city, and planning is
underway to expand the initiative to other communities within Dubuque County.
Future Needs
Senior Housing — Over the next 30 years the population of Dubuque County will continue age. The
communities of Dubuque County should plan for increased demand for extended care and assisted living
facilities. Communities should also look into strategies, such as universal design and mixed -use transit -
oriented development patterns that give elderly residents access to daily needs and allow them to stay
in their own home and maintain an independent lifestyle.
10
DUBUQUE COUNTY SMART PLAN
Housing
Low and Extremely Low Income Housing — The economic downturn has created more demand for low
income housing services. Communities should continue to work with HUD and other agencies to expand
homeownership opportunities, preserve existing affordable housing, and prevent homelessness.
Workforce Hosing — Many households of moderate income can have difficulty getting into good quality
housing. Communities should implement programs to help working families find housing that is
affordable.
Rental Housing — Examination of census data has shown that while owner - occupied housing units in
Dubuque County are relatively affordable when compared with the rest of the Country, the same can
not be said about rental housing. Many renters are paying upwards of 35% of their income for housing.
Communities should conduct further analysis to determine the factors behind the high cost of rental
housing and look into methods to improve rental housing affordability.
Housing + Transportation Costs — Data from the Housing + Transportation Index shows that 70% of
Dubuque County residents spend more than 45% of their income on housing and transportation. The
data also reveals that the most affordable areas are located within urban areas. Communities should
look into methods to direct more housing towards urban areas and to help reduce transportation costs.
11
Selected Monthly Owner Costs as a Percentage of Household Income in the Past 12 Months
Owner Occupied Housing Units With a Mortgage
Source: 2005 -2009 American Community Survey 5 -Year Estimates
Asbury Monthly Owner Costs as a Percent of HH Income
<10% 10 %-
15%
15%- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
20% 25% 30% 35% 40% 50%
Percent HH Income
16%
m 14%
p 12%
5 10%
L 8%
6%
4%
2%
c
0%
Dubuque Monthly Owner Costs as a Percent of HH Income
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
m 20%
m
0 15%
.c • 10%
n 5%
• 0%
Epworth Monthly Owner Costs as a Percent of HH Income
• , , ,I,I, ■,■,
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
35%
30%
25%
20%
3 15%
10%
5%
v
0%
Peosta Monthly Owner Costs as a Percent of HH Income
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Cascade Monthly Owner Costs as a Percent of HH Income
25%
m
Y 20%
q 15%
3 ▪ 10%
• 5%
.0`)
0%
a
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Dyersville Monthly Owner Costs as a Percent of HH Income
u 20%
p 15%
▪ 10%
•� S%
• <10% 10%- 15 %- 20 %- 25 %- 30 %- 35 %- 40%- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
20%
m
E15%
5
a
L 10%
5%
°; ▪ 0%
a
Farley Monthly Owner Costs as a Percent of HH Income
<10% 10 %- 15 %- 20 %- 25%- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH income
Selected Monthly Owner Costs as a Percentage of Household Income in the Past 12 Months
Owner Occupied Housing Units Without a Mortgage
Source: 2005 -2009 American Community Survey 5 -Year Estimates
w 14%
a 12%
e
2 10%
Q 8%
0 6%
4%
2%
= 0%
V.
a
Asbury Monthly Owner Costs as a Percent of HH Income
■ ■,■ ■ ., ■
<10% 10 %- 15 %- 20%- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Dubuque Monthly Owner Costs as a Percent of HH Income
16%
m 12%
12%
a 10%
s%
2 6%
w
a
4%
2%
0%
I. I . • , = , IM1 , EM , NM ,
< 10% 10 %- 15 %- 20%- 25 %- 3056- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
20%
m
15%
5
10%
0
t
Percent Units Wit
Epworth Monthly Owner Costs as a Percent of HH Income
5% -
0%
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >S0%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
14%
r 12%
10%
8%
- 6%
4%
c 2%
0%
to
Peosta Monthly Owner Costs as a Percent of HH Income
<10% 10 45- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
25%
m
20%
C15%
10%
5%
_ 0%
Cascade Monthly Owner Costs as a Percent of HH Income
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Dyersville Monthly Owner Costs as a Percent of HH Income
16%
Q 14%
0 12%
an 10%
a%
a 6%
4%
c. 2/o
0%
<10% 10 %- 15 %- 20%- 25 56- 30 %- 35 %- 40%- >SO%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
14%
I& 12%
2 10%
Q B%
0 6%
4%
2%
0%
u
d
a
Farley Monthly Owner Costs as a Percent of HH Income
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50%
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Gross Rent as a Percentage of House Hold Income in the Past 12 Months
Source: 2005 -2009 American Community Survey 5 -Year Estimates
Percent Renter Occupied Units
40%
35%
30%
25%
20%
15%
10%
5%
0%
Asbury Gross Rent as a Percentage of HH Income
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Percent Renter Occupied Units
Dubuque Gross Rent as a Percentage of HH Income
25%
20%
15%
10%
5%
0%
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Percent Renter Occupied Units
Epworth Gross Rent as a Percentage of HH Income
30%
25%
20%
15%
10%
5%
0%
15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
25%
20%
15%
10%
5%
0%
Peosta Gross Rent as a Percentage of HH Income
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
t Renter Occupied Uni
Cascade Gross Rent as a Percentage of HH Income
30%
25%
0%
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Percent Renter Occupied Units
25%
20%
15%
10%
5%
0%
Dyersville Gross Rent as a Percentage of HH
Income
III
<10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Percent Renter Occupied Units
35%
30%
25%
20%
15%
10%
5%
0%
Farley Gross Rent as a Percentage of HH Income
lilil +-1
< 10% 10 %- 15 %- 20 %- 25 %- 30 %- 35 %- 40 %- >50% NC*
15% 20% 25% 30% 35% 40% 50%
Percent HH Income
Gross Rent. The amount of the contract rent plus the
estimated average monthly cost of utilities (electricity,
gas, and water and sewer) and fuels (oil, coal, kerosene,
wood, etc.) if these are paid for by the renter (or paid
for the renter by someone else).
*NC = Not Computed
DUBUQUE COUNTY SMART PLAN
Housing Goals and Objectives
1. To promote the preservation, rehabilitation, and investment in our regional housing stock and
neighborhoods.
1.1. Ensure all rental housing exceeds adopted minimum housing quality standards through
systematic code enforcement.
1.2. Encourage a range of affordable, accessible, and decent rental housing options throughout
the community.
1.3. Consider expanding the use of housing preservation programs whenever appropriate and
possible.
1.4. Encourage participation in and use of low- interest rehabilitation and home purchase loan
funds.
1.5. Promote adaptive reuse of existing vacant or under - utilized structures, such as convents,
schools, and industrial buildings, into housing with an affordable and /or workforce
component, where appropriate.
1.6. Encourage the expansion of the capacity of neighborhood associations.
1.7. Promote residential educational workshops regarding restoration, rehabilitation, and
maintenance.
1.8. Encourage relocation of existing housing as opposed to demolition whenever possible; when
removal is necessary, require deconstruction and landfill diversion as much as possible.
1.9. Support the integration of new neighborhood residents into the neighborhood associations,
local schools, and community activities.
1.10. Continue to reduce vacant and abandoned housing in our neighborhoods through code
compliance, purchase, rehabilitation, and deconstruction if necessary.
1.11. Promote historic preservation as the cornerstone of housing and neighborhood
revitalization programs, to promote economic development and attract younger residents.
2. To promote programs, education, and training that support and encourage appropriate rental
housing oversight.
2.1. Promote programs, education, and training that support and encourage appropriate
landlord accountability.
2.2. Promote programs, education, and training that support and encourage appropriate tenant
accountability.
2.3. Support Community Oriented Policing and participation of neighborhood residents in crime
reduction strategies.
3. To promote the creation and maintenance of an adequate supply of sound, affordable housing
integrated throughout the region.
3.1. Promote partnerships with private sector, nonprofit, other government agencies and
neighborhood groups to access available public funding and attract private capital for
affordable housing development.
3.2. Promote mixed - income, mixed - rental housing developments.
DUBUQUE COUNTY SMART PLAN
Housing Goals and Objectives
3.3. Support the Section 8 Housing Choice Voucher Program to benefit lower- income families
seeking affordable rental housing.
3.4. Encourage local lenders to work with all homeowners to rehabilitate, remodel, or repair
existing homes.
3.5. Develop programs and incentives that encourage property owners to maintain and improve
the appearance of their property.
3.6. Maintain the existing sound housing units and to upgrade or replace all substandard housing
units.
3.7. Support the Green and Healthy Homes Initiative, providing empowerment services to
households in combination with efficient rehabilitation and preservation of affordable and
workforce housing.
4. To expand the opportunities for homeownership, especially for low to moderate income
households.
4.1. Encourage the use of flexible development regulations in order to assist affordable and
workforce housing production and decrease housing costs.
4.2. Encourage local lenders to participate in programs designed to assist first -time home
buyers.
4.3. Promote infill housing development opportunities, in the region's older neighborhoods,
through a combination of public subsidy, affordable housing incentives and owner sweat
equity.
4.4. Promote compact and contiguous development with a variety of higher density housing
options that utilize available infrastructure within the existing built environment.
4.5. Provide housing opportunities and incentives for low and moderate income families.
4.6. Provide financial planning for homeownership to ensure that low /moderate income
households have the wherewithal to be successful.
5. To promote fair housing opportunity for residents in all neighborhoods.
5.1. Provide for effective implementation of existing fair housing programs.
5.2. Encourage involvement of neighborhood residents to the fullest extent possible when
planning affordable housing developments.
5.3. Monitor, evaluate, and work to minimize federal, state and local codes and regulations that
are possible barriers to development of housing, particularly for persons with disabilities or
low income.
6. To assist local service agencies in providing shelter and semi - independent living for persons in
need of supportive services.
6.1. Monitor and evaluate homeless and other special needs populations in order to document
needs and design assistance programs.
6.2. Provide technical assistance to agencies in preparation of applications for program funding.
DUBUQUE COUNTY SMART PLAN
Housing Goals and Objectives
6.3. Encourage partnerships with area agencies in sponsorship of housing initiatives for special
needs populations.
6.4. Encourage development of special housing for the elderly and persons with disabilities
wherever suitable sites can be made available.
7. To promote the understanding that the availability and affordability of workforce housing is an
important key to successful economic development.
7.1. Promote corporate participation in employer assisted housing, for home purchase
assistance for employees.
7.2. Encourage local institutions, i.e., hospitals, colleges, to establish replacement housing
programs for housing lost to corporate expansions.
7.3. Encourage corporate participation in the Federal Low Income Tax Credit Program, for
purposes of investment in affordable housing development.
7.4. Promote an adequate housing supply to support workforce development efforts.
8. To promote the public's awareness of housing needs and issues through informational and
educational efforts.
8.1. Consider serving as a clearinghouse of information for housing issues and information, to
include providing educational programs for tenants and landlords.
8.2. Monitor housing market conditions and availability of housing.
8.3. Become more aggressive in attracting new residents to live in the cities.
8.4. Promote workshops for area housing industry members (contractors, lenders, realtors)
regarding changing regulatory mandates, i.e., lead -based paint, asbestos removal.
8.5. Combat the "Not In My Back Yard," or NIMBY, syndrome by dispelling stereotypes
associated with affordable housing.
8.6. Continue to promote collaboration with housing industry groups (Board of Realtors,
Mortgage Lenders Association, Dubuque Area Landlords Association) to promote
cooperation and consensus - building regarding housing issues.
9. To provide housing resources for aging residents.
9.1. Encourage the development of high -end, market -rate, and subsidized housing.
9.2. Encourage the development of appropriate levels and styles of housing.
9.3. Identify appropriate sites for housing development including the style of the development
and amenities to be included.
9.4. Encourage development of affordable apartments and condominiums for retirees.
10. To continue to provide appropriate infrastructure and services to neighborhoods.
10.1. Continue incremental improvements in water, waste, and stormwaterfacilities.
10.2. Continue appropriate levels of service to maintain public parks and open spaces.
DUBUQUE COUNTY SMART PLAN
Housing Goals and Objectives
10.3. Continue to enforce parkland dedication requirements, and other developer -paid
infrastructure development costs to ensure stability and equitability throughout the region.
10.4. Work with public and private utilities to ensure that broadband Internet is accessible.
11. To provide a variety of housing types, costs and locations in cities.
11.1. Promote the planning, design, and construction of a wider range of housing unit types in
adequate supply for all income levels and age groups.
Encourage and promote energy efficiency in new and existing housing.
11.2. Ensure that all new housing development is protected from potential flood hazard.
113. Support the continuation of single- family development in appropriate municipal locations at
similar density levels as experienced on a community wide basis.
11.4. Discourage scattered residential development in the unincorporated portion of the County
by guiding new development into a compact and compatible growth pattern within or
adjacent to the incorporated area and within easily serviceable watersheds.
11.5. Continue to encourage a wider range of housing types in the residential areas of the cities,
including single - family and multi - family structures, in response to changing housing market
demands.
11.6. Continue to provide developers with appropriate levels of information and service.
11.7. Consider developing minimum standards (height and bulk) for houses.
11.8. Explore design guidelines for residential development.
12. To provide a variety of housing opportunities within the unincorporated areas in appropriate
locations.
12.1. Ensure that the Future Land Use Development Map provides adequate development
potential for a variety of housing types to meet the housing needs of present and future
residents, encouraging housing to locate within incorporated communities.
12.2. Initiate a Housing Needs Assessment Study of the County to determine current housing
condition and need, and to estimate future housing requirements.
12.3. Locate residential development in platted subdivisions with adequate public services.
12.4. Encourage residential development to locate within existing cities and establish urban fringe
development areas where adequate public services are planned or can be provided.
12.5. Allow for the creation of urban density residential districts within established urban fringe
development areas that follow the planned development process, and where urban services
can be provided.
12.6. Limit proposed non -farm residential development on lots smaller than one acre to cluster
developments or conservation subdivisions that follow the planned development process,
and provide centralized water and wastewater systems, and limited access.
12.7. Investigate establishment of simplified development regulations to allow the division of
"old" farmsteads from current agricultural operations, which does not create non -
conformities, based upon the potential number of such divisions.
DUBUQUE COUNTY SMART PLAN
Housing Goals and Objectives
13. Increase resource efficiency, improve public health, and reduce environmental impacts by using
green residential building strategies.
13.1. Encourage water conservation strategies including but not limited to water efficient
appliances and plumbing fixtures, low -water landscaping, and rain water catchment.
13.2. Encourage energy conservation strategies including energy efficient appliances, lighting,
and heating and cooling systems
13.3. Promote programs to improve energy efficiency and enlist the participation of utility
companies in promotional efforts.
13.4. Encourage the use of renewable energy sources
13.5. Promote the use of recycled building materials.
13.6. Promote the use of building materials that do not cause negative health impacts for
residents or workers.
13.7. Encourage radon testing and abatement in residential properties
13.8. Encourage low impact development practices that increase stormwater infiltration rates,
prevent erosion, control sediment, use land more efficiently, and require less
infrastructure.
DUBUQUE COUNTY SMART PLAN
Economic Development
Introduction
A diverse vibrant regional economy is a critical component of the foundation of a sustainable
community. Good jobs that pay a living wage and access to goods and services are important factors in
measuring a community's quality of life. This chapter describes the data, policies, and organizations that
address issues of employment, industry, and commerce in a sustainable way.
Data Analysis
As Dubuque County strives to build a more vibrant economy through more effective local policies, local
governments need to have informative data and maps that illustrate the economic forces at work. The
US Census Bureau, Bureau of Economic Analysis (BEA), and the Bureau of Labor Statistics (BLS) provide a
wide variety of economic data through the Decennial Census and the American Community Survey
(ACS). The following charts and tables are selections from the Census that depict the most important
aspects of the Dubuque County economy.
Employment
Over the last 20 years, Dubuque County has experienced positive growth in total employment. The total
number of jobs has increased from 44,800 in 1990 to 56,500 in August 2010. Figure 1.1 illustrates the
overall positive growth in employment since 1990.
Figure 1.1
Dubuque County Historical Employment
13 55.0
c
'0 50.0
r
H
c
45.0
cu
40.0
0
a
E 35.0
W
v DataSource :_LISBuceau_oflaborStatistics
Year
Since 2000, Dubuque County's unemployment rate has mirrored the State of Iowa's rate. Based on the
BLS data presented in the Figure 1.2, both Dubuque County and the State of Iowa have fared well in the
recession. Current unemployment rates are approximately 3 percentage points lower than the national
1
■
DUBUQUE COUNTY SMART PLAN
Economic Development
average. Figure 1.2 shows the Annual Unemployment Rate for Dubuque County, the State of Iowa, and
the United States.
Figure 1.2
Unemployment Rate
10.0
9.0
8.0
7.0
6.0
5.0
4.0
3.0
2.0
Annual Unemployment Rate
1 1-
1990 1995 2000 2005 2010
— Dubuque County - -State of Iowa — United States
Data Source: US Bureau of labor Statistics
Employment growth is expected to continue over the next 30 years. According to projections made by
Regional Economic Model Inc (REMI), total employment in Dubuque County will reach 72,000 by the
year 2040. Figure 1.3 depicts the REMI 30 -year employment projection.
Figure 1.3
N
.0
0
80,000
70,000
60,000
50,000
40,000
30,000
20,000
10,000
Dubuque County Employment Forecast
2010 2015 2020 2025 2030 2035 2040
Year Data REMI Inc. 2010
2
DUBUQUE COUNTY SMART PLAN
Economic Development
Information on employment by industrial sector is available through the US Census Bureau's County
Business Patterns (CBP) dataset. The CBP is an annual series of data that provides county economic
data by industry. County Business Pattern data excludes most government employees, railroad employees, and self -
employed persons. Figure 1.4 contains the most recent CBP data from 2009. According to the CBP data,
the Manufacturing, Health Care, and Retail Trade industries are the largest employers in the region.
These three industries account for almost 50% of the employment in Dubuque County.
Figure 1.4
2009 County Business Patterns*
Industry
Paid Employees
Percentage of
Total Employees
Annual payroll
($1,000)
Total
Establishments
Total for all sectors
52,354
-
$ 1,721,358
2,745
Manufacturing
8,499
16.2%
$ 363,589
155
Health care and social assistance
7,666
14.6%
$ 302,535
255
Retail trade
7,280
13.9%
$ 143,440
441
Accommodation and food services
4,399
8.4%
$ 42,820
249
Finance and insurance
2,793
5.3%
$ 125,054
207
Educational services
2,656
5.1%
$ 52,368
40
Wholesale trade
2,613
5.0%
$ 102,417
166
Other services (except public
administration)
2,284
4.4%
$ 46,867
251
Transportation and warehousing
2,210
4.2%
$ 80,099
120
Construction
2,078
4.0%
$ 91,706
304
Information
1,985
3.8%
$ 87,706
54
Arts, entertainment, and recreation
1,912
3.7%
$ 35,788
57
Professional, scientific, and technical
services
1,851
3.5%
$ 67,785
170
Administrative and Support and
Waste Mgmt. and Remediation Srvs
1,723
3.3%
$ 40,327
123
Management of companies and
enterprises
1,468
2.8%
$ 100,481
22
Real estate and rental and leasing
441
0.8%
$ 12,426
105
Utilities
346
0.7%
*
7
Forestry, fishing, hunting, and
Agriculture Support
112
0.2%
$ 2,266
16
Mining, quarrying, and oil and gas
extraction
19
0.0%
*
1
Industries not classified
19
0.0%
*
2
US Census Bureau, 2009
* Data withheld to avoid disclosing data for individual companies
3
DUBUQUE COUNTY SMART PLAN
Economic Development
Figure 1.5 shows the total employment for each city within Dubuque County. The chart shows that the
majority of the jobs within the county are concentrated in the City of Dubuque.
Figure 1.5
Total Primary Jobs by
Asbury
City 2009
Total Dubuque
County Primary Jobs`
404
Cascade*
970
Dubuque
38,582
Dyersville*
2,343
Epworth
258
Farley
810
Peosta
1,338
Dubuque County
49,331
US Census Bureau, 2009
*Cities in more than one county, jobs totals include portions of city outside of Dubuque County.
Public and Private sector jobs, one job per worker. A primary job is the highest paying job for an individual worker.
Maps
To better understand the distribution of employment across Dubuque County, employment data has
been mapped using the US Census Bureau On the Map service. On the Map uses data derived from
Unemployment Insurance Wage Records reported by employers and maintained by each state for the
purpose of administering its unemployment insurance system.
Map 1 (at the end of the chapter) was created using On the Map. The map shows the density of
employment across the county. According to the map, the highest density of employment in the county
is located in and around Dubuque's Downtown. Employment density is also high in Dubuque's west end
commercial area. Other areas of moderate employment density occur at locations across the County
with the larger densities mainly within the larger cities.
Map 2 shows the employment inflow and outflow for Dubuque County. Inflow and Outflow maps for
individual cities can be found at the end of the chapter. This series of maps that shows the flow of
workers in and out of each community. The arrows show the numbers of workers that commute to the
city to work, the number of workers that live and work in the city, and the number of workers that live
in the city but work elsewhere. The tables below the arrows show were workers who commute to the
city come from, and where the workers who leave for work go. These maps are important for
understanding the complex interactions among communities within Dubuque County.
4
16,606
DUBUQUE COUNTY SMART PLAN
Economic Development
Map 2
Dubuque County Employment Inflow & Outflow 2009
Live lit
Grant County WI
2,200
Jackson County, IA
1,745
Dela«are County, IA
1,255
Jo Daviess County, IL
1.212
Linn Cowtty, IA
903
Black Hawk County IA
677
Scott County IA
675
Polk County, IA
622
Clayton County, IA
547
All Others
6,740
\ \'ork In
Linn County, IA
1.961
Scott County, IA
1,551
Jo Daviess County, IL
838
Johnson County, IA
830
Polk County, IA
756
Black Hawk County, IA
597
Delaware County. IA
403
Clinton County, IA
373
Jones County, IA
357
All Others
4,036
Work in Dubuque Live and Work in
County Live Outside Dubuque County
U.S. Census Bureau. 2011.Oui rheMap Application. Longitudinal - Employer Household Dynamics
Program. http: / /lehdmap.did.census.gov/
Economic Development Agencies
Live in Dubuque
County Work Outside
Several public and private organizations are working within Dubuque County to help improve the local
economy. These organizations provide aid to small businesses, administer state programs, and help
create and implement effective local polices to foster economic growth and prosperity.
Community Economic Development
Cities in Dubuque County are working to encourage business growth in their communities. When
businesses expand or relocate, they usually are pushing the financial limits and they need financial
support packages from communities they are considering for expansion or relocation. Communities
provide access to several programs which can be tapped to encourage business development. Some of
the tools used by communities include:
• Tax Increment Financing (TIF) - An incentive program which captures the increased property taxes a
business pays from improving their property. This incentive can be used to help pay for needed
infrastructure improvements or to provide grants /rebates to the business. Businesses must commit
5
DUBUQUE COUNTY SMART PLAN
Economic Development
to job creation in the community or must have an extraordinary positive impact for the community to
offer this incentive.
• Low Interest Loans - Loans for building improvements are available if a qualified project locates
within certain areas of the community.
• Land Discount - Communities provide a land discount if the business commits to significant job
creation in the community.
• State of Iowa Programs - Programs like the Community Economic Betterment Account (CEBA),
Enterprise Zone Benefits, Revitalize Iowa's Sound Economy (RISE), and the Iowa Values Fund are
available from the State of Iowa for qualifying projects.
• Jobs Training — the State of Iowa's 260E and 260F programs provide employee training through the
state's 15 community colleges. 260E provides training to businesses that are expanding their Iowa
workforces, and 260F provides training to existing Iowa businesses. Northeast Iowa Community
College administers these programs in Dubuque County.
East Central Intergovernmental Association (ECIA)
ECIA manages a number of economic development programs. ECIA Business Growth Inc., a non - profit
corporation formed in 1982, provides low- interest loans to businesses for expansion that creates new or
retains current jobs. The Small Business Administration is the primary funding source. ECIA Business
Growth Inc. has extended loans in excess of $68,518,199 and has created or retained more than 4,615
jobs. ECIA Business Growth Inc. also assists local communities in the administration of Revolving Loan
Funds. These funds are loaned to businesses and industries, and the proceeds are returned to the local
governments for future loans. Other economic development initiatives managed by ECIA include:
• Prosperity Eastern Iowa is a four - county economic development region including Delaware,
Dubuque, Jackson, and Jones Counties and the cities of DeWitt and Marion.
• Buyer Supplier is an organization dedicated to connecting buyers and suppliers of all types of
products and services in Eastern Iowa.
• The Petal Project is a green business certification program that provides organizations with a
framework for reducing their energy, water, and natural resource use to benefit the
environment and their bottom line.
• •AccessMyFuture.com is an interactive website that explores careers in the region and provides
links to a variety of job search sites within the region, including: accessdubuquejobs.com,
DeWitt Delivers Careers, Delaware County job listings, Iowa Workforce Development and a host
of others. This project is a collaboration between a number of organizations in the region with
the main focus of increasing the number of skilled trade professionals.
Chambers of Commerce
6
DUBUQUE COUNTY SMART PLAN
Economic Development
Chambers of commerce play an important role in economic development in Dubuque County.
Chambers are organizations of businesses that work to further the needs of other businesses and
promote tourism activities. Chambers work on the local level to bring businesses together and develop
strong social networks. Chambers also work with the local government to help create pro- business
initiatives. In Dubuque County the Dubuque Area Chamber of Commerce, the Dyersville Area Chamber
of Commerce, the Cascade Chamber of Commerce and the West Side Business Association of Dubuque
work to promote and protect local businesses and work to make their communities better places to live.
Economic Development Corporations
Economic Development Corporations are not - for - profit organizations that work closely with
government, business, and other partner organizations to promote economic development through
recruitment and retention of industry, tourism promotion, workforce development, and employee
recruitment and retention. There are several active economic development corporations in Dubuque
County including: Asbury Area Development Corporation, Cascade Economic Development Corporation,
Greater Dubuque Development Corporation, Dyersville Economic Development Corporation, Epworth
Economic Development Corporation, Farley Development Corporation, and Dubuque Main Street.
Economic Challenges, Strengths, and Opportunities
ECIA produces a Comprehensive Economic Development Strategy (CEDS) every five years to monitor and
evaluate long -term economic goals and strategies and to coordinate the development activities in a five -
county region that includes Dubuque County. In its most recent edition, completed in January 2010, the
CEDS outlines the most important economic development challenges and opportunities that are facing
the region. The following list contains the challenges, strengths, and opportunities that were listed in
the 2010 -2014 CEDS and the 2011 CEDS Annual Update.
Challenges
Future Shortage of Skilled Workers
The Dubuque County regional economy faces a future shortage of skilled workers because of
retirements. In October 2011, Iowa Workforce Development (IWD) released the Iowa Workforce Needs
Assessment for the region that includes Dubuque, Delaware, Jackson, and Jones Counties. The Needs
Assessment found that as the baby boomer generation begins to retire, employers in Dubuque County
will be forced to replace and train thousands of skilled workers. According to the IWD, several industries
in Dubuque County will have large percentages of their workforce eligible to retire in the next five years.
The industries with the highest retirement eligibility include Educational Services (30.4 %), Health Care
and Social Services (25.9 %), Manufacturing (14.0 %), and Wholesale and Retail Trade (6.5 %). 1 The report
1 http:// www .iowaworkforce.org /Imi /labsur/ vacancy/ prosperitveasterniowaworkforceneedsassessment2011 .pdf
p. 13
7
DUBUQUE COUNTY SMART PLAN
Economic Development
detailed what employers are doing to replace workers who retire. Of the employers who replied to
IWD's survey, 33.4 % plan to use a combination of outside workers and promoting within the company,
31.0 % do not currently plan on filling these positions, 29.1 % plan only to hire workers from outside the
company, and 6.5 % plan only to promote from within the company.
Gender Wage Gap
Wage inequality between men and women is
another issue that is facing Dubuque County.
According to the Iowa Policy Project's 2011
report The State of Working Iowa, "the gap
between women's and men's earnings has
narrowed with time, nationally as well as in
Iowa. The lowest gap of $2.60 /hour was
measured in 2010. However, this appears to be
largely due to a decline in the earnings of men. "2
Figure 1.6 shows a chart depicting the results
from the Iowa Policy Project's analysis.
Natural Disasters
Figure 1.6 Gender Wage Gap
$20
Sid
515
514
512
510
Ed
sb
54
12
54
fidiAgEaRringfninfiliAIMEg
Source: Iowa Policy Project
In recent years, the region has been hit hard by natural disasters. In the past five years, tornados and
floods have caused billions of dollars in damage across the State of Iowa. Many communities in
Dubuque County are still working with federal and state agencies to rebuild damaged homes and
businesses. Since 2008, Dubuque County has been included in three federal disaster declarations.
These disasters include:
2008: Severe Tornadoes and Flooding FEMA- 1763 -DR - Cedar, Clinton, Delaware, Dubuque, and
Jackson Counties.
2010: Severe Storms, Hooding, and Tornadoes FEMA- 1930 -DR - Delaware, Dubuque and Jackson
Counties.
2011: Severe Storms and Flooding FEMA - 4018 -DR - Dubuque and Jackson Counties.
See the Hazard Mitigation Chapter for more information on natural disasters.
Adequate Transportation Infrastructure
Adequate transportation infrastructure funding is a challenge for the region and the State of Iowa.
Transportation challenges that impact Iowa and Dubuque County include: increased traffic demands and
freight movements, changing demographics, increased biofuels production, increased construction and
maintenance costs, flattened revenues, and aging infrastructure. According to the Iowa DOT 2011 Road
2 http:// www. iowapo1icvproiect. org /2011docs/110902- SWI2011.Pdf p.11-12
8
DUBUQUE COUNTY SMART PLAN
Economic Development
Use Tax Fund Study, the transportation system will need a minimum of $215 million per year in
additional funding to meet the "most critical stewardship needs on existing infrastructure.i3 State
legislators have debated a state gas tax increase to cover the funding gap, but the region also must work
to stretch its limited transportation budget by investing its funds wisely. See Transportation Chapter for
more information on the County's transportation infrastructure.
Lack of Quality Rental Housing
Quality rental housing has become an issue for the region with the addition of IBM and their 1,300 new
employees. Rental units in the region are sparse. The average year of construction for rental units in the
region is 1951, which means that many of the units are close to 60 years in age. Of the total housing
units in the region, less than 30% are rental units. The IBM workforce population in search of housing is
looking for rental housing. The demographic for this population is between the ages of 25 -30, recent
college graduates, one to two years of work experience, making $30,000 to $35,000 per year. The
vacancy rental rate for the region is 1.1 %, and in the Dubuque area, it is less than .05 %. In the near
future, the region must address the shortage of workforce rental housing. See Housing Chapter for
more information on Dubuque County housing issues.
Innovation
The wildcard for the region is innovation and entrepreneurship. The State New Economy Index ranked
Iowa 45th in the nation when it comes to economic dynamism and its ability to rejuvenate itself through
the formation of new innovative companies. The study focused on several indicators including the
number of entrepreneurs starting businesses and the number of patents issued. The study found that
the region lacks a significant institutional source for innovation such as a tier one research university or
major private research and development facility. Leaders in the region agree that the region's economic
future will be founded on a strong seedbed of entrepreneurs and a steady stream of talented individuals
who are willing to take on the risk associated with starting new businesses. The region must find ways to
integrate entrepreneurship into the K -12 curriculum to encourage it at a young age and provide a way to
change the culture over time. The region must find new mechanisms to harness some of the indigenous
wealth in the region and recycle it into new businesses. The region needs to pursue equity capital to
fund new business start -ups . Finally, the region needs to improve delivery of support services for
entrepreneurs.
Strengths
Manufacturing
Dubuque County's deep industrial and manufacturing roots make it attractive to employers. According
to the US Census Bureau's 2009 County Business Patterns data, 16.2% of workers in Dubuque County
are employed in the manufacturing sector. Many of the firms are locally owned. A 2009 study for the
region completed by Rural Policy Research Institute (RPRI) indicates that manufacturing employment is
3 http: / /www.iowadot.gov /pdf files /RUTFStudv2011.pdf p. 12
9
DUBUQUE COUNTY SMART PLAN
Economic Development
24 -30% of the employment base in Dubuque County."' The surrounding counties of Delaware, Jackson,
Cedar, and Clinton have only a 0 -6% manufacturing base. According to RPRI Manufacturing in areas such
as truss manufacturing, motor vehicle seating and trim, residential electric lighting fixture
manufacturing, and cut stone product manufacturing, will all experience a 60 %+ growth in the 2007 to
2017 time frame. This growth presents employment opportunities for residents in the region and
provides a basis for educational programs to fit the needs and the demands in the region looking out to
2017.
Business Services
Business Services remains a strong employment sector in the region. The business and professional
services sector provides needed services such as consulting, processing, legal, management support, etc.
to all of the other industries in the region. This sector has grown rapidly over the last several years and
remains one of the fastest growing sectors nationally. Leaders in the region realize that more emphasis
on growing service companies within the region will be crucial to sustaining future growth in the
business services sector. Nearly 27% of the residents in the region are employed in the business services
sector.
Tourism
Tourism has remained strong in the region and will continue to be a priority with the National
Mississippi River Museum and Aquarium, the Grand River Center, the Field of Dreams, the National
Farm Toy Museum, Sundown Mountain, Heritage Trail, and the synergies that have been created
between the counties in the region and the communities across state lines into Wisconsin and Illinois.
Wineries have begun to crop up throughout the region as well as opportunities for eco and agri- tourism.
Local tourism experts in the Tri -State region indicate that high gas prices, recent credit crunch, and the
nation's plunge into the recession actually might boost small town tourism and fewer miles traveled can
equal more fun. According to the CEDS, "Overall tourism dollars in our region increased by 1.98% from
2007 to 2008." Although the national average was 3.29% (www.poweroftravel.org), rural counties
outpaced the national average. This is likely due to less than ideal economic conditions that cause
people to stay in their own areas for entertainment rather than travelling longer distances. For example,
Cedar, Clinton and Jackson Counties had over a 5.00% change in travel impact dollars from 2007 to 2008
(www.trave l Iowa, com).
Opportunities
Workforce
Workforce remains a double -edged sword for the region. The region is known for its highly skilled and
educated workforce, but as noted in the challenges section, retaining and recruiting younger workers to
replace retiring experienced workers remains a challenge. Local economic development groups and
employers have initiated efforts to address workforce issues for their communities. One such initiative
4 Drabenstott, Mark. "Strategic Opportunities for the RiverLands" Rural Policy Research Institute. Spring 2009.
10
DUBUQUE COUNTY SMART PLAN
Economic Development
is the recruitment website Accessmyfuture.com. Accessmyfuture.com is an interactive website targeting
the 14 -25 year old population exploring careers in the region and providing links to a variety of job
search sites. Local firms have partnered with the area colleges and community colleges by connecting
students to internship programs funded by the local companies. Companies in the region are also
offering more flexible work schedules, telecommuniting, incentives, etc. to attract and retain
employees. Local communities in the region need to continue build off these initiatives to create
opportunities to attract and retain a skilled workforce.
Passenger Rail
The proposed return of Amtrak passenger rail service from Chicago to Dubuque is a transportation
related opportunity that has excited the region and has the support of both Iowa and Illinois. Amtrak
completed a feasibility study in 2006. The study estimated an annual ridership of over 75,000
passengers on one round -trip per day. According to the study, the project will require $32 million in
track improvements and a $3 million annual operating subsidy. The Iowa and Illinois Departments of
Transportation have applied for grant funding to assist with the initial track improvement costs. Public
support for the project is widespread. Over 8,000 Iowa residents and over 15,000 Illinois residents have
signed a petition in support of the Amtrak service. Anticipated implementation of the new Amtrak line is
2014.
Sustainability
Sustainable development initiatives have created new business opportunities in Dubuque County. IBM
was initially attracted to the Dubuque area in part because the area was already engaged in
sustainability efforts. IBM created a new opportunity for the region when it announced plans to make
Dubuque the first American city to participate in its Smarter Planet initiative. The Smarter Sustainable
Dubuque effort involves improving sustainability on a variety of city systems. IBM will use its
technological resources to improve the efficiency of water, energy, and transportation. Smarter
Sustainable Dubuque is a national model for more than 1,000 other cities. Other businesses in the area
have also used sustainability to grow their business. A.Y. McDonald, a Dubuque based manufacturer of
water works brass and valves, produced new sustainable water meters for the City of Dubuque. The
Unmeasured -Flow Reducer meter measures and accounts for small leaks throughout the home, making
the homeowner more aware of unintended water usage.
The recent focus on sustainability in the region has increased investment in the manufacturing and
business service sectors. According to the CEDS, "Partnerships from across the region were crucial to
attracting IBM and will remain critical in the future. Part of the attraction to the region was the
concentration of the educational institutions in the region that provide a ready supply of high - quality
workers. Additionally, the workforce development arena remains aligned consistently with the region's
employment needs and its strategic opportunities."
11
DUBUQUE COUNTY SMART PLAN
Economic Development Goals and Objectives
1. To reduce unemployment, achieve economic stability, and increase the standard of living for all
citizens.
1.1. Maintain a broad community consensus regarding the direction of economic development
efforts.
1.2. Promote diversification of the commercial /industrial base.
1.3. Encourage access to economic incentives for quality job creation and /or tax base
enhancement.
1.4. Continue to use a unified economic development team, with public /private sector
involvement, to tackle the region's economic development goals.
1.5. Reduce barriers to economic growth, while recognizing regulatory function.
1.6. Identify additional resources to aid in economic development.
1.7. Maintain a community socio- demographic database as an information clearinghouse for
economic development.
2. To build a highly skilled, flexible workforce.
2.1. Cooperate with local educational institutions to coordinate training /skill requirements to meet
the needs of local employers.
2.2. Reduce barriers to obtaining necessary or upgraded job skills.
2.3. Utilize the talents and experience of mature workers who bring special skills and knowledge to
the work force.
2.4. Maintain an informational clearinghouse that coordinates job training, placement, and skills
development.
2.5. Develop and deliver educational programming over the widest array of media.
2.6. Provide information on work skills development and available employment opportunities
through print, electronic, and telecommunications media.
3. To concentrate on retaining and expanding existing local businesses.
3.1. Cooperate with business, educational institutions, community organizations, and government
to provide information to local businesses.
3.2. Assist local firms in finding appropriate development sites for expansion.
3.3. Encourage existing neighborhood employers to grow "in place," keeping jobs close to where
people live.
3.4. Retain existing manufacturing firms and facilitate their expansion.
3.5. Maintaining and strengthen the region's position as a retail center in the trade area.
3.6. Maintain and expand the local health care industry's share of the regional market.
3.7. Retain and expand the base of service industry employment.
3.8. Encourage downtown revitalization and neighborhood business development.
3.9. Encourage diversified retail shopping.
DUBUQUE COUNTY SMART PLAN
Economic Development Goals and Objectives
3.10. Retain and expand - river - dependent uses, while recognizing environmental constraints.
4. To increase the number of small firms within the region by fostering local entrepreneurship.
4.1. Cooperate with other agencies and institutions to identify programs and services to assist in
the creation of new small businesses.
4.2. Promote start -up businesses with both financial and technical assistance.
4.3. Remove barriers to allowing in -home businesses to be successful.
4.4. Strengthen - programs which provide business development, information, and technical
assistance.
5. To recruit businesses that are suited to the region, require a highly skilled work force or are willing
to train an entry-level work force and are experiencing growth.
5.1. Assist businesses and industries that produce exports or import substitutes and that provide
high quality jobs.
5.2. Promote opportunities in the region to targeted businesses and industries.
5.3. Continue a collaborative recruitment strategy among business, non - profits, and government.
5.4. Recruit businesses with new technology and renewable resources.
5.5. Recruit businesses that are in line with the State's economic development goals.
5.6. Recruit businesses that utilize the by- products of other businesses.
5.7. Recruit a variety of restaurants and retail establishments, including franchises that are not
currently in the region, but that are located within the regional malls that attract shoppers
from the region.
6. To identify the economic needs of the chronically unemployed and underemployed in the region,
and encourage programming — including education and retraining -- to meet those needs.
6.1. Develop awareness of the impediments to employment for this sector of the population.
6.2. Collaborate with unemployed and underemployed persons and potential employers to find
creative ways to overcome barriers.
6.3. Target- unemployed young adults (ages 18 -24) for job /skills training, providing supportive
services as needed.
6.4. Promote access to resources and tools for education, training, and supportive services
through a variety of means and media.
6.5. Encourage business, labor, education, and government partnerships to solve workforce
development problems.
7. To maintain and strengthen region's position as a tourist destination.
7.1. Promote existing attractions.
7.2. Promote a variety of additional year -round tourist attractions.
7.3. Focus resources on future tourism initiatives, including those identified in the community
visioning process.
DUBUQUE COUNTY SMART PLAN
Economic Development Goals and Objectives
7.4. Foster enhanced recreational access to local attractions as an economic development
strategy.
8. To promote and encourage preservation of the region's historic assets.
8.1. Explore ways to increase State and Federal funding for historic preservation.
8.2. Explore ways to remove barriers to preservation.
8.3. Educate the public on the economic benefits of historic preservation.
9. To strengthen the local tax base.
9.1. Encourage expansion and diversification of the tax base.
9.2. Attract- and retain capital intensive industries for increased property values.
9.3. Encourage property improvements and revitalization throughout the region.
9.4. Consider annexing additional land, as necessary and as possible according to smart growth
principles to accommodate future expansion in cities.
9.5. Discourage rural commercial and industrial development to businesses other than those
businesses serving local retail, service and agricultural needs of rural communities.
10. To establish and maintain housing and transportation, communication, and utility systems which
support and foster quality development.
10.1. Coordinate the provision of supportive infrastructure in concurrence with new development.
10.2. Evaluate new development impacts on existing infrastructure and services to ensure
adequate capacity and compensation.
10.3. Encourage efforts to link the region with major transportation networks.
10.4. Work closely with public agencies, such as RTA, Jule Transit, and the private sector to deliver
an efficient and effective transportation system.
10.5. Improve transit connections between residential communities and work sites.
10.6. Coordinate infrastructure investment strategies of government, business, and local
institutions.
10.7. Pursue special opportunities for alternative modes of transportation to serve as attractors
themselves, such as care and bicycle sharing and bicycle /pedestrian facilities and amenities.
10.8. Limit rural commercial development oriented to the general traveling public to locations
along highways or paved County roads adequate to support traffic demand.
11. To strengthen, maintain, and continually upgrade technology infrastructure and systems, and
provide adequate access and capacity for current and anticipated needs.
11.1. Foster communication with end users regarding current and future needs.
11.2. Explore feasibility of community wide wireless computer networks, or Wi -Fi (wireless
fidelity).
11.3. Promote opportunities of the information superhighway for economic development.
DUBUQUE COUNTY SMART PLAN
Economic Development Goals and Objectives
11.4. Maintain a computerized Geographic Information System (GI5) to support economic
development in the region.
12. To provide an adequate supply of vacant, development -ready land for commercial and industrial
use.
12.1. Promote redevelopment of existing vacant, underutilized, and brownfield properties.
12.2. Promote utilization of development -ready sites.
12.3. Evaluate potential commercial and industrial development sites, based on the Future Land
Use Map.
12.4. Protect development potential of commercial and industrial sites.
12.5. Promote aeronautical and industrial park development at the Dubuque Regional Airport.
12.6. Consider annexing growth areas, as necessary and as possible, to ensure adequate supply of
developable land and to control development in the fringe areas of cities.
12.7. Direct commercial development serving regional needs to cities able to provide needed
infrastructure.
12.8. Provide adequate customer parking when creating or expanding commercial development.
12.9. Utilize techniques that help with traffic safety and address drainage problems.
12.10. Protect extractive mineral and aggregate areas, whether developed or undeveloped in urban
and rural areas, and reserve such areas for extractive purposes.
13. To encourage development that is environmentally sensitive.
13.1. Target environmentally sensitive business and industry in recruitment efforts.
13.2. Promote development of businesses and industries that are committed to enhancing local
environmental quality.
13.3. Promote and encourage sound environment practices with existing businesses and
industries.
13.4. Promote and encourage the use of alternative and /or renewable fuel and energy sources for
vehicle fleets, building operations, and manufacturing processors.
13.5. Encourage LEED (Leadership in Energy and Environmental Design) Green Building Rating
System or similar concepts in building design for new and existing facilities.
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Mitigation is defined as taking sustained actions to reduce or eliminate the long -term risks to people and
property from hazards. An effective hazard mitigation strategy must permeate all aspects of a
community. The goal of this chapter is to help consortium members exceed federal hazard mitigation
planning requirements by integrating hazard mitigation into all aspects of local government operations
including:
• Vision and goal setting
• Zoning, subdivision, and building codes
• Reviewing and preparing development agreements, redevelopment plans, and site review.
• Capital budgeting.
To achieve this goal, communities will need to ensure that all public and private stakeholders including
those outside of the public safety field are actively engaged in the hazard mitigation process.
Emergency managers, elected officials, city managers, planning commission members, public works
employees, transportation planners and engineers, GIS managers, environmental professionals, parks
and recreation officials, and economic development directors should all be educated on hazard
mitigation issues and be actively engaged in the planning process. The challenge for those developing
hazard mitigation plans is to synthesize the information from these groups, put it into a plan, and outline
a path to implementation.
FEMA
As part of the US Department of Homeland Security, the Federal Emergency Management Agency
(FEMA) oversees and coordinates the response to disasters that go beyond the capacity of state and
local governments. FEMA's mission is to support our citizens and first responders to ensure that as a
nation we work together to build, sustain, and improve our capability to prepare for, protect against,
respond to, recover from, and mitigate all hazards.
Iowa Homeland Security and Emergency Management Division
The Iowa Homeland Security and Emergency Management Division (HSEMD) coordinates hazard
mitigation and preparedness activities on the state level. HSEMD was created in 1965 as the State Civil
Defense Agency. Following the September 11th terrorist attacks the HSEMD's mission was expanded to
include Iowa's homeland security efforts. HSEMD provides technical assistance, training, exercise
facilitation, communications and other support necessary for establishing and maintaining local
capabilities. HSEMD ensures consistency and compliance with various federal and state requirements
and regulations.
Dubuque County Emergency Management Agency
Local emergency management in Iowa is structured as a commission form of government established in
chapter 29 C of Iowa Code. County emergency management commissions are composed of a member
of the board of supervisors or its appointed representative, the sheriff or the sheriff's representative,
and the mayor or the mayor's representative from each city within the county. The emergency
1
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
management commission establishes the agency and hires and emergency management coordinator
who is responsible for the development of the countywide emergency operations plan, coordination of
emergency planning activities, providing technical assistance to communities throughout the county.
The emergency management coordinator is also responsible for establishing local mutual aid
arrangements, and coordinates with Iowa Homeland Security and Emergency Management to ensure
the emergency management and response communities have adequately planned and are well -
equipped, trained, and exercised.
Emergency management commissions are responsible for 11 specific responsibilities. They are:
• Hazard analysis and risk assessment
•Resource management
•Planning
•Direction, control and coordination
• Damage assessment
• Communication and warning
•Operations and procedures
•Training
•Exercises
•Public education and information
•Agency administration.
County emergency management agencies are responsible for developing countywide emergency
operations plans. The plans include three parts: an operations plan, a mitigation plan, and a recovery
plan. The operations plan assigns responsibilities to organizations and individuals for carrying out
specific actions at projected times or places during an emergency or disaster. The mitigation plan
establishes interim and long -term strategies to eliminate hazards or reduce their impact. The recovery
plan identifies the short -term and long -term strategic priorities, processes, vital resources, and
acceptable time frames and procedures for restoration.
Emergency Management Plans
The Dubuque County Emergency Management Agency is the primary emergency planning entity in the
county, but state and federal law requires that other agencies to also prepare for emergency situations.
Police departments fire departments, airports, and public health officials produce emergency plans.
Figure 1.1 includes a list of the emergency management plans that are currently active in Dubuque
County and the agencies responsible for producing the plans.
Figure 1.1 Emergency Management Plans and Responsible Agencies
Plan
Agency
Dubuque Severe Weather Plan
Dubuque County EMA
Dubuque County Emergency Operations Center
Plan
Dubuque County EMA
Dubuque County Comprehensive Emergency
Management Plan
Dubuque County EMA
Dubuque County Mass Casualty / Mass Fatality
Plan
Dubuque County EMA & Dubuque County Medical
Examiner's Office
2
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Figure 1.1 Emergency Management Plans and Responsible Agencies
Plan
Agency
Dubuque County Public Health Preparedness Plan
Dubuque County Public Health
City of Dubuque Evacuation Plan
City of Dubuque Police Department
Traffic Incident Management Plan
Dubuque County Multi- Disciplinary Safety Team &
Dubuque Police Department
Dubuque County Winter Storm Plan
Dubuque County Engineer
Multiple Fatality Plan
Medical Examiner's Office
Dubuque County Multi Jurdsdictional Hazard
Mitigation Plan
Dubuque County EMA
Biological /Chemical Threat Agent (BCTA) Protocol
Dubuque Fire Department Hazmat Team
Iowa emergency Alert System Plan
Iowa Homeland Security & National Weather
Service
Dubuque Regional Airport Emergency Plan
Airport Operations
Source: Dubuque County EMA
Cycle of Emergency Management
Mitigation is one of four phases in the cycle of emergency management. The four phases are
interdependent, with each phase contributing to better performance in the next one. "Understanding
of the cyclical pattern of disasters can help shape community awareness that hazards are always
present, that the next disaster is a matter
of time, and that mitigation planned and
implemented during the lull between
events can pay serious dividends in
reducing future death and destruction.i1
Figure 1.2 illustrates the cycle of
emergency management.
Mitigation. This phase includes any
activities that prevent an emergency and
reduce the likelihood of occurrence, or
reduce the damaging effects of
unavoidable hazards. Mitigation activities
should be considered long before an
emergency.
Preparedness. This phase includes
preparations made to save lives and to
help response and rescue operations.
Evacuation plans, stocking food and water,
Figure 1.2 The Cycle of Emergency Management
Preparedness
Response
Mitigation
Recovery
d
Source: FEMA
Schwab, James C. "Hazard Mitigation: Integrating Best Practices into Planning" American Planning Association.
May 2010.
3
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
and holding disaster drills are examples of preparedness. Preparedness activities take place before an
emergency occurs.
Response. This phase includes actions taken to save lives and prevent further property damage in an
emergency situation. During the response phase preparedness plans are put into action. The response
phase includes the mobilization of necessary emergency services and first responders to the disaster
area. Response activities take place during an emergency.
Recovery. This phase includes actions taken to return to a normal or an even safer situation following
an emergency. Recovery efforts are primarily concerned with actions that involve rebuilding destroyed
property, re- employment, and the repair of other essential infrastructure. Recovery activities take place
after an emergency.
Dubuque County Multi- Jurisdictional Hazard Mitigation Plan
The Dubuque County Multi- Jurisdictional Hazard Mitigation Plan (MJHMP) provides the basic Hazard
Mitigation strategy for all municipalities in Dubuque County. In the past each incorporated city and
county in Iowa was required to complete their own hazard mitigation plan, but regulations were
recently changed requiring that all municipalities within a county be included in a multi - jurisdictional
plan.
The Disaster Mitigation Act of 2000 requires all local governments to assess their risks to natural hazards
and identify actions that can be taken in advance to reduce future losses. The law requires all local
governments and districts to have an approved Multi- Hazard Mitigation Plan to be eligible for federal
disaster assistance and hazard mitigation funding programs.
To assist Dubuque County in the preparation of the mitigation plan, HSEMD awarded a contract to
Dubuque County who in turn contracted with East Central Intergovernmental Association (ECIA). ECIA's
role is to assist Dubuque County with the completion of a FEMA- approved multi - jurisdictional local
hazard mitigation plan. The Dubuque County MJHMP was last updated in 2012.
Analysis Hazards and Risks
The primary purpose of the
MJHMP is to identify hazards,
analyze the risk associated
with each hazard, and
estimate the community's
vulnerability to each hazard.
Hazards are ranked using the
Hazard Risk Analysis Ranking
system. The system awards a
score of 1 -4 for each of the
following categories: Historical
Occurrence, Probability,
Vulnerability, Maximum
Figure 1.3 Hazard Analysis Risk Assessment Results For Countywide
Hazards
Hazard
Total Score
Rank
Severe Winter Storm
21
1
Windstorm
18
2
Thunderstorm & Lightning
17
3
Extreme Heat
15
4
Tornado
15
5
Hailstorm
15
6
Drought
14
7
Grass or Wild Land Fires
9
8
4
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Geographic Extent, Severity, and Speed of Onset. The scores are summed and hazards are ranked
based on their total score, which can range between 6 and 24. Hazard rankings are done in two groups,
countywide hazards and community specific hazards. Figure 1.3 shows the results of the countywide
ranking.
Once each of the eight identified countywide hazards have been assessed, scored, and ranked, the eight
hazards are prioritized into one of three categories to provide guidance in the establishment of goals,
objectives, timetables and mitigation alternatives. The Priority Group 1 Hazards are candidates for
immediate focus in the emergency plan because of their high risk. Priority Group 2 hazards are those
that have a known risk, but their focus in the plan will have mitigation activities in the next 1 -3 years.
Those noted in Priority Group 3 have an acceptable level of risk and will not be addressed further. No
action items were formulated to address Group 3 hazards. Countywide Hazard Priorities are listed in
Figure 1.4.
Figure 1.4 Hazard Priority Lists for Countywide Hazards
Priority Group 1
Priority Group 2
Priority Group 3
Severe Winter Storm
Hailstorm
Drought
Windstorm
UNL
Grass or Wild Land Fire
Thunderstorm & Lightning
UNL
13
Extreme Heat
Asbury
UNL
Tornado
UNL
UNL
Each participating jurisdiction independently ranked the six hazards that are considered to vary from city
to city. The six community specific hazards are: dam failure, flash flood, landslide, levee failure, river
flood and sinkholes. In Figure 1.5, the six hazards are identified with their risk analysis score on a scale of
6 - 24, or with a UNL for unlikely to occur. Some cities found that their risk is only to county -wide
hazards and not to the six hazards considered to be site - specific. The hazards were ranked as either
"unlikely to occur" (UNL) or given numerical scores using the Hazard Risk Analysis Ranking system.
Figure 1.5 Hazard Analysis Risk Assessments Results for Community Specific Hazards
I );ii I ),, 1
Uninc. Co.
UNL
19
10
UNL
13
9
Asbury
UNL
9
UNL
UNL
UNL
UNL
Balltown
UNL
UNL
UNL
UNL
UNL
UNL
Bankston
UNL
12
UNL
UNL
UNL
10
Bernard
UNL
15
UNL
UNL
UNL
UNL
Cascade
UNL
13
UNL
19
10
UNL
Centralia
UNL
10
UNL
UNL
UNL
UNL
Dubuque
9
17
11
15
16
9
Durango
UNL
24
UNL
UNL
24
UNL
Dyersville
UNL
20
UNL
UNL
18
UNL
5
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Figure 1.5 Hazard Analysis Risk Assessments Results for Community Specific Hazards
Epworth
UNL
17
UNL
UNL
UNL
12
Farley
UNL
16
UNL
UNL
UNL
UNL
Graf
UNL
16
UNL
UNL
UNL
UNL
Holy Cross
UNL
UNL
UNL
UNL
UNL
UNL
Luxemburg
UNL
15
UNL
UNL
UNL
UNL
New Vienna
UNL
14
UNL
UNL
6
UNL
Peosta
UNL
19
UNL
UNL
UNL
UNL
Rickardsville
UNL
13
UNL
UNL
UNL
UNL
Sageville
UNL
24
UNL
UNL
24
UNL
Sherrill
UNL
14
UNL
UNL
UNL
UNL
Worthington
UNL
13
UNL
UNL
20
UNL
Zwingle
UNL
UNL
UNL
UNL
UNL
UNL
UNL — Unlikely to Occur
Hazard Descriptions
The following section contains a brief description of severe winter storms, flooding, and severe storms.
These three hazards were ranked high in the countywide and community specific Hazard Analysis Risk
Assessment. The Dubuque County MJHMP contains a more detailed description of each hazard.
Severe Winter Storm
Overall vulnerability to severe winter storms relative to other hazards is considered high, with
significant potential impact to the general population and /or built environment and significant exposure
of assets. Winter storms typically involve snow and ice, occasionally accompanied by high winds, which
can cause downed trees and power lines, power outages, accidents, and road closures. Transportation
networks, communications, and utilities infrastructure are the most vulnerable physical assets in the
planning area and affect the jurisdiction equally. The most significant damage during winter storm
events occurs when freezing rain and drizzle accumulate on utility poles and power lines causing
widespread power outages.
During heavy snow and ice events, the threat to public safety is typically the greatest concern. Lower
income and elderly populations are more at risk in cases of power outages during severe winter storms.
These storms also impact the local economy by disrupting transportation, school and commercial
activities. Travelers on roadways and highways in Dubuque County, particularly along remote stretches
of road, can become stranded, requiring search and rescue assistance and shelter provisions. Agriculture
and livestock are also vulnerable to extreme cold temperatures and heavy snow.
Buildings that have tree limbs hanging over them are more vulnerable to damage by falling limbs. Utility
power poles and lines are the critical facilities that are most vulnerable. Potential losses to the electric
line infrastructure are difficult to quantify. Roads and bridges covered with ice make travel treacherous
6
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
and slow emergency vehicles. Businesses experience losses as a result of closure during power outages.
Schools also often must close.
Winter Storm Mitigation and Preparedness
Although future residential or commercial buildings built to code should be able to withstand snow and
ice loads from severe winter storms, the increased number of developments will place additional
demands for utility infrastructure on the current systems. The MJHMP recommends investment in utility
infrastructure, including burial of electric utilities and the addition of poles in areas prone to ice
accumulation. Some communities in Dubuque County are now deploying GPS technology as part of
their snow and ice removal strategy. GPS locators are placed in snow plow trucks and can be linked to
the city's GIS system. The GPS improves efficiency of snow removal service, and helps keep employees
safe by monitoring their location. These actions should decrease future losses.
Flash and River Flooding
Floods are among the most frequent and costly natural disasters in terms of human hardship and
economic loss. Eastern Iowa has experienced numerous flood events and loss of millions of dollars in
property and crop damage over the past 25 years.
There are several different types of potential flood events in Dubuque County including river and flash
flooding. Flash flooding can best be characterized as an event occurring with little or no warning time
where water levels rise at an extremely fast rate. Flash flooding results from intense rainfall over a brief
period, sometimes combined with rapid snowmelt, ice jam release, frozen ground, saturated soil, or
impermeable surfaces.
Flooding caused by rivers, creeks and other tributaries overtopping their banks due to large amounts of
precipitation, was also identified as being a risk to several of the Dubuque County jurisdictions. Summer
floods result from above normal precipitation over an extended period of time and /or extremely heavy
rainfall. Spring floods typically result from the rapidly melting of snow and rain. River floods are typically
forecast well in advance, but in some cases, residents may have as little as 24 hours warning. Damages
from river floods may include any property as heavy rains of this magnitude create heavy ground
saturation and commonly flood basements. Depending on the month and maturity of crops, they may
cause significant crop damages as well.
Historically, the Mississippi River has flooded the City of Dubuque's low -lying riverfront properties many
times over the last 150 years. In 1973 a 6.4 mile long earthen and concrete floodwall system has
protected Dubuque from numerous Mississippi River flood events since. Those flood events include four
of the ten highest flood crests ever measured, including Dubuque's second highest ever crest of 25.40
feet in 2001. Only Dubuque's Hamm Island and Catfish Creek valley lie outside the protection of
Dubuque's floodwall.
In July 2010, Dubuque County experienced severe flooding. The City of Durango reported heavy
downpours, thunder and lightning. Water came over Highway 52 and the worst came from the north, from
the area of the City of Sherrill and "raged" down Highway 52. As water came over the highway, it poured
7
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
into doors and into homes. There are twelve houses in Durango and 3 or 4 of those are presently
considering FEMA buyouts.
The City of Dyersville has a long history of dealing with flash and river flood events. In 2009, the City of
Dyersville was awarded $3,336,800 through the Hazard Mitigation Grant Program which has provided
the City with the funding to acquire 27 properties that have severe flood damage. To date, 11 of the
properties have been acquired and the process continues. In 2009 the City was also awarded a
Community Development Block Grant in the amount of $1,100,000 for the acquisition of an additional
10 properties. That process also continues and is expected to be completed by Fall 2012.
Flooding Mitigation and Preparedness
Communities can help reduce flooding by implementing Low (pact Development techniques (LID). LID
techniques focus on maintaining predevelopment hydrologic conditions by managing runoff at the
source using uniformly distributed stormwater management facilities. Instead of conveying and
treating stormwater in large facilities located at the bottom of drainage areas, LID addresses stormwater
through small, cost - effective landscape features located at the lot level. Examples of LID techniques
include limiting impervious surfaces and avoiding sensitive areas. For more information on LID see the
Watershed Chapter.
Communities can also help mitigate flood damage by limiting development in the floodplain. The risk of
flooding to future development in Dubuque County should be minimized by the floodplain management
programs in the region. Many Dubuque County communities have chosen to participate in the National
Flood Insurance Program (NFIP). Communities across the United States participate in the NFIP by
adopting and enforcing floodplain management ordinances to reduce future flood damage. In exchange,
the NFIP makes federally backed flood insurance available to homeowners, renters, and business
owners in these communities. Flood risk can be further reduced by strengthening floodplain ordinances
beyond minimum NFIP requirements.
Other mitigation actions include elevation of structures in the hazard path, acquisition of structures in
the hazard path, raising, grading, or resurfacing roads, reinforcing culverts to counteract washouts, and
adding lift stations. Some communities in Dubuque County portable Hesco barriers that are filled with
sand and can be deployed to protect property and vital infrastructure during a flood.
Severe Storms
Thunderstorms, lightning, tornado, hailstorms, and windstorms are relatively common in Iowa, including
Dubuque County particularly in the spring and summer. All areas of Dubuque County are vulnerable to
severe storms. Most severe storms cause little damage, but some can be life threatening and cause
extensive damage to buildings, trees, utilities, and crops. Tornadoes are relatively common in Iowa,
including Dubuque County, particularly in spring and summer. The potential for tornadoes to occur is
county -wide and Iowa is known to have a long history of having a higher rate of tornadoes per square
mile than any other state. Lightning can cause damage to electronic equipment located inside buildings.
Communications equipment and warning transmitters and receivers could be knocked out by lightning
strikes. Hail can cause significant damage to buildings, utilities, and crops.
8
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Severe Storm Mitigation and Preparedness
Severe storms affect the entire planning region, including all above ground structures and utilities.
Future development projects should consider severe storm hazards at the planning, engineering and
architectural design stage with the goal of reducing vulnerability. Many Dubuque County communities
already have development and building codes that address severe storm mitigation. Storm warning
systems are effective method to prepare for severe storms. Warning systems can be as simple as
encouraging citizens to purchase NOAA weather radios, but can also include television audio and video
overrides as well as outdoor warning sirens. Any warning system should have a plan for how and when
it is used and how it is maintained and tested.
Man -made Disasters
Man -made disasters result from hazards that have an element of human intent, negligence, or error; or
involve the failure of a man -made system. Examples of man -made hazards include technological
hazards such as structural collapse, industrial hazards, hazardous material spill, and power outage.
Man -made hazards can also be caused by societal problems that result in war, terrorism, and rioting.
Transportation is also a source of man -made hazards. Aviation, rail, and road disasters can result in loss
of life, property damage, and long term impacts on mobility within a region.
In Dubuque County transportation represents a potential man -made hazard. US highways 20, 52, 61,
and 151 and the CN and CP railways are important regional commerce routes that can also pose some
risk for accidents that produce, chemical spills, fire, and explosions. The highways also represent
important evacuation routes that need to remain open during an emergency. The region also has many
bridges including the heavily traveled US 61/151 Bridge and the Julien Dubuque bridges that need to be
inspected and maintained regularly. Other potential man -made hazards in Dubuque County include
levee failure, industrial accidents, and fires.
Man -made Mitigation and Preparedness
Mitigation and preparedness activities or man -made disasters can differ based on the type of disaster.
Many man -made disasters, such as the 2007 I -35W bridge collapse in Minneapolis, are the result of
flaws in design, maintenance, and construction without any assistance from the natural environment.
The best strategy to prevent these types of disasters is to make infrastructure inspection and
maintenance a top community priority. Communities can do this by including projects recommended in
hazard mitigation plans in their capital improvement plans. If the infrastructure is not under the
community's direct control, the community will need to work with other government agencies, such as
the Iowa DOT, or private companies, such as gas pipeline operators, to ensure that proper inspection
and maintenance are completed.
In other cases, structures in normally good condition are pushed beyond their limits by unusual events,
such as the railroad bridge collapse in Cedar Rapids during the flood of 2008. Regular inspection and
maintenance can limit weaknesses and make structures more resilient to these events, but it is
impossible to design a structure that will withstand every possible event. In these cases, it is important
for communities to develop contingency plans so that the community can continue to function during a
9
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
disaster. The Dubuque County Multi- Disciplinary Safety Team with local law enforcement and the City
of Dubuque maintain local evacuation and incident management plans. The evacuation plan lists
primary evacuation routes and secondary routes that are to be used if a primary route becomes
impassible. The incident management manual outlines a program designed to aid agencies in rerouting
traffic in the event of a road closure. Both plans should be reviewed an updated to keep the region
prepared for a disaster.
Information technology and communications systems are an important consideration for disaster
preparedness. If a municipal building is destroyed or power is lost thousands of important documents
and other data can be lost. Communities in Dubuque County can protect their information by locating
facilities outside of the flood plain, installing battery backup systems and emergency generators, and
using offsite storage. Good communications are important to emergency response especially during a
disaster. Dispatch systems should be protected and redundant so service can remain on line during a
disaster. Communities should also work with nearby municipalities to ensure that their communications
systems are compatible so communications can be maintained during emergency response.
Implementation
The goals, actions, and timelines will be discussed with directions given by the Board of Supervisors, City
Councils, Mayors, and school district Superintendents for inclusion of these mitigation measures into
their budgets for implementation. The region will continue to include mitigation projects in the Capital
Improvements Plan and the Comprehensive Land Use Plan for implementation on a planned basis
whenever feasible. Land use decisions will incorporate the findings of the MJHM Plan. Figure 1.6 includes
a list of the top three hazard mitigation priorities for each community. A complete list of projects can be
found in the Dubuque County MJHMP.
(Communities with no projects listed below have not completed the MJHMP planning process. The table
will be updated after those communities have submitted the required information)
Figure 1.6 Top Hazard Mitigation Priorities
Rank
Mitigation Action
Estimated Cost
Completion Date
Participating
Jurisdictions
1
Continue to add needed infrastructure to
mitigate flood damage.
Unknown
Ongoing
ALL
2
Train personnel as weather spotters.
Staff Time
Ongoing
ALL
3
Maintain or consider NFIP membership as
required.
Unknown
Ongoing
ALL
1
Develop Emergency Alert Notification Systems
for vulnerable unincorporated areas of
Dubuque County (i.e. text alert, email, voice
recording, etc.) to notify residents of
pending /possible disasters.
Unknown
Long Term
UC /EMC, CSO
10
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Figure 1.6 To Hazard Mitigation Priorities
Rank
Mitigation Action
Estimated Cost
Completion Date
Participating
Jurisdictions
2
Continue to enforce the Floodplain Ordinances
and monitor all construction activities that are
located in or near a floodplain.
$5,000
Ongoing
UC /Zoning
3
1
Maintain an evacuation plan as referenced out
of the Comprehensive Emergency Management
Plan (CEMP).
Continue to use City Hall as a storm shelter and
to consider the building of a safe room in
conjunction with any new city building projects
for the safety of current and future Asbury
citizens.
$1,000
NA
Ongoing
Ongoing
UC /CSO, EMC
Asbury /City
Council •
2
Continue to make the Fire Station available as a
shelter space to persons in need on a
temporary basis during periods of extreme
heat.
NA
Ongoing
Asbury /Fire
Dept
3
Continue to keep all seven backup generators
in good repair and available.
$12,600/yr
Ongoing
Asbury /Public
Works
1
Install electrical distribution lines underground.
$0
Ongoing
Cascade /Public
Works Director
2
Secure and place two new outdoor weather
warning sirens to be strategically placed in the
community.
$38,000
Ongoing
Cascade /City
Administrator
3
1
Continue to maintain and operate current
outdoor weather warning system.
$2,500
Ongoing
Ongoing
Cascade /Public
Works Director
Dubuque/ EMA/
Public Works
Continue to maintain and update City's severe
weather plan and winter weather plan on an
annual basis.
$1,000/ Anually
2
Continue to remove snow and ice from City
streets, airport parking and City -owned parking
lots per the snow and ice control plans.
$1.25 million
annually
Ongoing
Dubuque/
Public Works/
Airport
3
1
Continue maintenance review and enforcement
of snow removal regulations and updating the
ordinance regarding on- street parking following
a snow event.
Project Ranking Incomplete
$2,000/
Annually
Ongoing
Dubuque/
Public Works/
Police/ Parking
2
3
1
Oversee completion of 2 storm water studies to $30 -$40K
Short Term
Epworth/ Mayor
11
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation
Figure 1.6 To Hazard Mitigation Priorities
Rank
Mitigation Action
Estimated Cost
Completion Date
Participating
Jurisdictions
examine concerns in the northwest and
southwest quadrants of the city.
& City Clerk
2
Implement mitigation actions recommended as
result of storm water studies.
Unknown
Long Term
Epworth/ Mayor
& City Council
3
Evaluate generator needs for mobility to
service lift station.
$9,000
Short Term
Epworth/ Public
Works
Farley
1
Upgrade city storm sewer system to prevent
future residential, business and city
infrastructure flood damage.
$500,000
Long Term
Farley /Public
Works
2
Protect Waste Water Treatment Center from
Flooding by developing a retention /detention
area to the SW of the WWTP. Create a
retention /detention area to the SE of the
WWTP with a bypass storm water pipe.
$100,000
Long Term
Farley /Public
Works
3
Purchase and install a tornado warning siren in
northeast section of city near school and park.
$7,500
Short Term
Farley /Mayor &
CC
1
Provide storm drainage between Tennis Lane
and Kapp Drive.
$50,000
Sept. 2012
Peosta /PW /City
Council
2
Continue to participate in the 28E Agreement
with the City of Peosta and Centralia /Peosta
Fire Department for fire protection.
$0
Ongoing
Peosta /City
Council /Fire
Department
3
Install Knox Boxes for all industrial and
commercial buildings including schools.
$5,000
Ongoing
Peosta /City
Council /Fire
Dept.
12
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation Goals and Objectives
1. Increase capabilities within Dubuque County entities to mitigate the effects of hazards by
enhancing existing or designing and adopting new policies that will reduce the damaging effects of
hazards.
1.1. Reduce repetitive property losses due to flood, wildfire, winter storms, and other hazards.
1.2. Protect critical facilities, infrastructure, and utility systems.
1.3. Encourage the incorporation of mitigation measures into repairs, redevelopment, and capital
improvement projects for governments, businesses, education institutions, and the public.
1.4. Identify funding opportunities for future mitigation measures.
2. Protect the most vulnerable populations, buildings, and critical facilities within Dubuque County
through the implementation of cost effective and technically feasible mitigation projects.
2.1. Educate property and business owners on affordable mitigation and preparedness measures
that can be taken to reduce property loss.
2.2. Assure that vulnerable buildings and critical facilities within Dubuque County are identified,
cataloged, and that vulnerability assessments are completed for each identified facility.
2.3. Assure that vulnerable populations such as the elderly, homeless, low income or those with
limited English proficiency are included in educational programs regarding preparedness or
mitigation.
2.4. Enhance the capabilities to collect, analyze, update, and exchange data and information to
support risk assessment and mitigation needs.
3. Improve the level of responder, government, business, and citizen awareness and preparedness
for disaster.
3.1. Identify and develop needed training and exercises for targeted responder, government and
citizen audiences.
3.2. Strengthen outreach and partnerships with the private sector, nonprofit organizations and the
public.
3.3. Improve public understanding of hazards and risk by providing public awareness, preparedness,
and mitigation information through various channels of communication.
4. Develop programs to assure that response agencies, governments, educational institutions, and
local businesses are able to operate during times of disaster.
4.1. Promote the development of emergency response plans, including continuity of operations
plans, among local response agencies, governments, educational institutions and local
businesses.
4.2. Provide education, training, and exercise opportunities for local entities to prepare for and test
their ability to operate during times of disaster.
5. Coordinate a multi - jurisdictional approach to integrate hazard mitigation and land use planning.
5.1. Create maps to identify hazardous areas.
5.2. Incorporate hazard mitigation into zoning, subdivision, and building codes where applicable.
5.3. Develop policies and ordinances to steer development away from hazardous areas.
1
DUBUQUE COUNTY SMART PLAN
Hazard Mitigation Goals and Objectives
5.4. Review land for potential hazards before subdivision approval.
5.5. Consider providing incentives for building in non - hazardous areas.
5.6. Preserve and enhance protective features of the natural environment including wetlands,
vegetation on steep slopes, and other natural areas that promote ground water infiltration.
5.7. Retrofit buildings and facilities at risk in redeveloping areas.
6. Coordinate future transportation plans with appropriate hazard mitigation plans including the
Regional Evacuation Plan and the Incident Management Manual.
6.1. Prioritize which roads and bridges that shall remain passable during an emergency or
evacuation.
6.2. Identify alternative routes if prioritized roads and bridges become impassible.
6.3. Train all personnel in emergency response procedures and protocols, and conduct annual
refresher training.
6.4. Establish ongoing means of redundant communication with fire, sheriff, and police
departments and the County Emergency Management Agency to ensure sharing of crime and
security information among all concerned.
6.5. Work with public safety agencies including law enforcement, fire, emergency medical services,
and emergency management regarding security and emergency preparedness plans.
6.6. Define transit systems role in non - transit emergencies.
6.7. Review evacuation plans in the region, focusing on transit security plans.
2
DUBUQUE COUNTY SMART PLAN
Public Infrastructure & Utilities
Public infrastructure and utilities are a key component of quality of life within the Dubuque County
Region. Access to infrastructure and utilities also has a profound impact on land development. Land
that has access to municipal utilities has greater development potential and has a higher value than land
that does not have access. In rural areas where no municipal utilities are available, residents rely on
private wells and septic systems. These systems are effective, but require large lots to avoid
groundwater contamination. This chapter will provide an introduction to the County's public
infrastructure and utilities and explore how these necessary items impact land use, environmental
quality, and economic development.
Water Supply and Distribution System
A typical water supply and distribution system will contain four basic components: a Water Source,
Filtration and Treatment, Water Pressure and Storage Tank, and Local Distribution Pipes. Figure 1.1
shows a basic water supply and distribution system. Water filtration eliminates any undesirable
biological contaminants and provides water with a desirable chemical balance. The treated water is
pumped from the treatment source to a water storage tank. The purpose of the tank, which is usually in
the form of an elevated water tower or reservoir, is to provide pressure to push water throughout the
system. After water leaves the storage tank, a system of underground pipes deliver the water to homes
and businesses. In low density rural areas private wells are used to supply water.
Figure 1.1 Schematic Diagram of a Typical Water Distribution System
WATER
SOURCE
RIVER,
WELL,
RESERVOIR,
LAKE
ETC.
WATER PRESSURE
AND STORAGE TANK
FILTRATION
AND
TREATMENT
HOUSE E3RANCHES
�/.7" %. -%
MAIN
TRUNK
STREET % MAIN
Source: Anderson, Larz T. Planning the Built Environment, 2000
Community Water Distribution Systems
Asbury - The Asbury municipal water supply currently has three active public water wells open in the
Cambrian- Ordovician aquifer. The approximate discharge for all wells is 11,552,000 gallons per day
(gpd). The Colonial Estates well is capable of producing 425 gallons per minute (gpm), the Woodmoor
well is capable of producing 180 gpm, and the Wedgewood Estates well is capable of producing 225
gpm. Municipal water is delivered via a network of 165,000 linear feet of piping ranging from four to
twelve inches in diameter.
Cascade - Cascade's water supply comes from two wells: one well drilled to a depth of 244' in a Silurian
aquifer formation; the other is drilled to a depth of 950' deep in a sandstone formation. The City of
Cascade has approximately 1,025 water system customers. Average daily demand is 196,300 gallons.
Current elevated water capacity is 140,000 gallons. Cascade's two wells have combined pumping
capacity of 785 gallons per minute. Cascade's water distribution system has some 19 miles of
underground water main: approximately 45% of which is 4" diameter, 15% is 6" diameter, 40% is 8" in
diameter, with the remaining 5% being 10" diameter or greater. Cascade serves 1,025 customers with
its water system. The City is preparing to upgrade the system in 2012 -13 with a new well, additional
mains looping the system, and a new 400,000 gallon composite elevated storage tank.
Dubuque - Water is pumped from five shallow and four deep wells. Deep wells yield high quality water,
but the shallow wells are used as the primary source since they are more energy efficient. Well depths
vary from 127' to 200'. Individual well capacities range from 1.55 to 3.30 million gallons per day (MGD)
and the theoretical combined capacity of all five wells at 14.15 MGD. Water pumped from the wells is
aerated, treated with lime, and filtered. Following filtration the water is disinfected with chlorine and
fluoride and phosphate is added. After the water is treated it is pumped into the distribution system.
Dubuque must maintain five separate distribution systems because of its hills and elevation variations.
The distribution system includes five tanks and two reservoirs with a total storage capacity of
18,050,000 gallons. Water is then forced through 318 miles of piping ranging in size from four inches up
to twenty -four inches in diameter.
Dyersville - The City of Dyersville is served by two water wells at which the groundwater is drawn from
the Cambrian Jordan Sandstone aquifer. The first water well, along with its booster stations, is located
in the northwest portion of the City and it is near a 750,000 gallon reservoir. The second water well is
located in the southeast portion of the City and it is located near a 500,000 gallon water tower.
Epworth — Epworth has three wells that produce a total of 907,200 gallons per day. Well number three
has a nitrate removal system. The city has one water tower with a 300,000 gallon capacity.
Farley — Farley operates three wells. Well one has the capacity to pump 150 gallons per minute and
wells two and three can pump 300 gallons per minute. Once water is pumped from the ground, the
water is treated phosphates and chlorine gas. The city has two water towers with a combined storage
capacity of 450,000 gallons.
Peosta — Peosta has two wells, both with 280 gallon per minute capacity. Peosta treats water by adding
chlorine and polyphosphate. The community has two water towers with a combined capacity of
350,000 gallons. The existing facility has been designed to serve the projected 2032 population of 2536
persons. Possible future expansion plans include extension of service to Centralia and new subdivision
development.
2
Wastewater Collection and
Treatment Systems
There are two basic methods used for
treating wastewater. The preferred
method for urban and residential
areas is to collect wastewater
through a network of pipes and let it
flow by gravity to a treatment plant.
The treatment plant separates solids
(sludge) and liquids (effluent). The
sludge is disposed of in a way that is
economical and safe for the
environment, and the effluent is
usually discharged into a flowing
stream or rivers. Figure 1.2 shows a
schematic diagram of a waste water
collection and treatment system and
water treatment plant.
Figure 1.2 Schematic Diagram of a Wastewater Collection and
Treatment System
Source: Anderson, Larz T. Planning the Built Environment, 2000
In rural areas, septic tanks are used to treat sewage. Wastewater flows by gravity from an individual
source into a septic tank where it is biologically digested by a natural process. The system allows the
effluent to flow through a leaching field into the nearby soil. The sludge is removed from the tank every
two or three years. Septic tanks are used primarily in low density rural areas. Separation between the
well and septic tank are required to prevent drinking water contamination.
Community Wastewater Systems
Asbury — The existing wastewater collection system is in good condition. Gravity collection lines ranging
in diameter from 4 -inch to 16 -inch and force mains ranging from 4 inches to 10 inches serve the City.
In addition to gravity collection lines and force main, the City is also served by nine (9) lift stations (Hales
Mill, Radford Road, Wedgewood, Arrowhead, Northwest, Hales Mill, Brook Haven, Asbury Court Place,
Carver).
The mechanical wastewater facility opened in 2007 and includes a headworks building that houses grit
removal, screenings removal, a laboratory, and control room. The process uses an oxidation ditch; final
clarifiers, RAS /WAS pumping systems, sludge storage, flow equalization basins, and a UV disinfection
system to achieve compliance with the City's National Pollutant Discharge Elimination System (NPDES)
permit requirements. The existing facility has been designed to serve the projected 2023 population of
6,121 persons. Asbury's wastewater collection consists of 151,000 linear feet of piping ranging from
two to fifteen inches in diameter.
Cascade - Cascade's wastewater treatment system plant currently treats an average of 168,000 gallons
of effluent per day for 1,010 customers. The plant has capacity to treat 250,000 gallons of
sewage per day.
3
Dubuque — Dubuque's wastewater treatment plant has the capacity to serve a population of 204,000.
This capacity should meet the city's projected population needs for approximately thirty years. The city
operates fourteen pumping stations, all with standby capability.
Dyersville - The City of Dyersville constructed a wastewater treatment facility in 2001 to carry water,
other liquids and waterborne refuse carried by sanitary sewer distribution systems. In 2009, a second
phase of the wastewater treatment facility was constructed consisting of aerobic digester aeration
system replacement, sludge processing building construction, abandoned lagoon cell conversion to long-
term sludge storage, installation of an effluent recycle lift station and pressure system, and installation
of variable frequency drives on the oxidation ditch mechanical aerators along with an automatic level
control system.
Epworth — Epworth's wastewater treatment system consists of a 3 -cell aerated lagoon with three lift
stations. A new wastewater aero -mod mechanical plant is in the design phase.
Farley — Farley's wastewater treatment system consists of an activated sludge mechanical plant and two
lift stations.
Peosta — Peosta's wastewater treatment system consists of aerated lagoons and 7 lift stations.
Solid Waste Disposal and Recycling
The Dubuque Metropolitan Area Solid Waste Agency (DMASWA) is an intergovernmental entity formed
in 1973 under Chapter 28E of the Code of Iowa. Although originally formed primarily for the purpose of
owning and operating a sanitary landfill, the DMASWA has since broadened its mission. Members of the
DMASWA include the City of Dubuque, with two Board representatives, and Dubuque County, with one
representative. All remaining municipalities in Dubuque and Delaware Counties have signed "Non -
Member Service Agreements ". The Agency's municipal solid waste (MSW) landfill is located on
Dubuque's west side along U.S. Highway 20. Its service area is Dubuque and Delaware counties. The
Agency owns 460 acres of property, of which 80 are permitted for landfill use.
Garbage and recycling collection in Dubuque County is provided by a variety of municipal and private
service providers. Other small cites businesses and contract for these services. Waste collection and
disposal are regulated by state and local laws. Figure 1.3 lists Dubuque County garbage and recycling
service providers. Recycling in Dubuque County is strongly encouraged.
re 1.3 Residential Garbage and Recycling Collection Service Providers
City
Garbage Collection
Recycling Collection
Asbury
Dittmer Recycling
Dittmer Recycling
Cascade
City of Cascade
Allied Waste
Dubuque
City of Dubuque
City of Dubuque
Dyersville
Bi- County Disposal
Bi- County Disposal
Epworth
Roling Sanitation
Roling Sanitation
Farley
Dittmer Recycling
Dittmer Recycling
Peosta
Bi- County Disposal Inc.
Bi- County Disposal Inc.
Telecommunications
4
Telecommunications infrastructure is becoming an increasingly important issue for economic
development and quality of life in the region. High -speed Internet and mobile phone service have
become a necessity for most residents and many businesses. Internet access has become so important
that the United Nations declared it a basic human right in 2003. Expansion of Internet use has
increased demand for internet bandwidth and has required expansion of telecommunications
infrastructure. Many people now rely on the internet for shopping, banking, entertainment, job
applications, applying for government services, and much more. Figure 1.4 provides a list of
telecommunications service providers currently operating in Dubuque County.
Figure 1.4 Dubuque County Telecommunications Service Providers
Wireline Providers
Wireless Providers
Alpine Long Distance
AT &T Mobility
Bernard Telephone
Bernard Telephone
Cascade Communications Company
Dish Network Corporation
Centurylink
Hughes Network Systems
Lamotte Telephone Company
Speed Connect
Mediacom
Sprint
Windstream
Verizon Wireless
ViaSat
U. S. Cellular
You Squared
Source: Connect Iowa
Map 1.1 shows maximum advertised broadband speed for Dubuque County and the State of Iowa.
According to the maps, higher download speeds are available in the urban areas where wireline
broadband is available. Broadband internet is available in the rural areas of the county through wireless
providers, but download speeds are slower with wireless service. Data transfer rates are measured in
mega bits per second (mbps).
Download speeds in Dubuque County are similar to those seen across the state. In the urban areas in
Dubuque County, download speeds of between 25 -50 mbps are available. This is comparable to most
urban areas across the state, but in some areas, download speeds greater than 100 mbps are available.
In most instances, the maximum advertized speeds are much higher than an average Internet user
would require. According to Connect Iowa, the average residential download speed in Iowa is 5.2 mbps
and the average business download speed is 7.2 mbps. Higher speeds are important for businesses and
institutions that need to send large quantities of data quickly.
The data presented in Map 1.1 indicates that broadband is available almost everywhere in the county,
but availability does not equal accessibility. According to Connect Iowa survey data, 34% of Iowa
residents do not have broadband access. When asked why they did not subscribe to broadband the top
two responses were: no content worth viewing, 26 %; Bbroadband fees too expensive, 23 %; and
computer too expensive, 7 %.
5
Map 1.1 Maximum Advertised Download Speed
Dubuque County Wnrline Download Speed Dubuque County Wireless Download Speed
1. 1 Saute Nat Available t mbps to 6 mbpt t5 mhpr to 50 mhos
- less than 1.S mbps G mbps to 10 mbps - SO mbps to 100 mbps
- 1.S robot to 1 ndgn 10 mbpt is Inbpr _ Grimier than 100 mbps
Iowa Wireline Download Speed Iowa Wireless DOwnload Speed
4
itf*
.�.7Tt. ;
it
Data Source! Connect Iowa, 2111
*Data transfer rates are measured in megabits per second (mbps).
Power Plants and Transmission Lines
Interstate Power and Light Company (Alliant Energy). Alliant Energy provides electricity to 1.4 million
customers in Iowa, Illinois, and Wisconsin. Alliant Energy's corporate offices are located in Madison
Wisconsin. The company also has general offices in Cedar Rapids and Dubuque. Alliant Energy primarily
serves the urban areas of the county, but it does serve some rural areas as well.
Maquoketa Valley Electric Cooperative (MVEC) is a private, non - profit electric utility that was
established in 1935. MVEC is member owned and provides electric service to primarily rural areas of
Delaware, Dubuque, Jackson, and Jones Counties. MVEC serves 14,000 members across 3,100 miles of
line.
The Cascade Municipal Utilities is a city -owned provider of electricity (and natural gas) service to 1,098
customers (2011) within its corporate limits. Cascade municipal utilities supplies electricity to its
customers primarily from long -term wholesale energy contracts with other providers, but also has
stand -alone generation that can supply all power during service outages or during peak -load periods.
6
ITC Midwest, a subsidiary of ITC Holdings Corp, operates the electrical transmission lines that run
through Dubuque County. ITC Midwest operates more than 6,800 circuit miles of transmission lines in
Iowa, Minnesota, Illinois and Missouri. The company is headquartered in Cedar Rapids, Iowa, and
maintains operating locations at Dubuque, Iowa City and Perry, Iowa; and Albert Lea and Lakefield,
Minnesota.
Map 1.2 shows the service areas for the three electrical service providers that operate within Dubuque
County.
Map 1.2 Iowa Utilities Board Electrical Service Areas
ON ON
I
Maquoketa
Valley,
Maquoketa
• Vipey
Sp
Legend
I l
CD+ 0
s$ I
r
L:—
Maquoketa
Valley
New REC ecurdary 1044 -2011
Cher eourda.•y Changes 109 -2011
kluridpal
Interstate Poser and Light Come, any (IPL)
krdAntenran Energy (IMAE)
REC
Mn, Society Sereie.
Seceon Lres
Corporation Lines
Sea Dotal Map
O
,1
w E
y
Maquoketa ;ta
Valley
tfL
IPL Cascade
•
Maquoketa
Valky
uunidpal. ' rrl,
t J
Maquoketa
y>tky.
Maquoketa
V,Ir y r *:
its mi
IPl. •
Maquoketa
Valley J. '
Boundaries follow section, half section,
quarter section, or natural harriers except
as dimensioned.
For updates and detail maps visit:
www. st ate.ta.uslgovetnrentrconllulill
energy/index.html.
0 1®
Miles
Infrastructure and Development
Public expenditures for infrastructure can shape a community's land use patterns, and in turn, the
community's land use patterns will determine the costs and efficiency of utility service delivery.
Communities can use smart planning principles such as higher density and infili development to keep
utility rates low and improve delivery system efficiency. Adding new developments to the existing
network spreads the systems capital costs over a larger customer base lowering the costs of service per
customer. However, if new infrastructure is built for new customers, the opportunity to improve the
efficiency of the existing system is lost leading to higher costs per customer.
7
For example, large lot low density residential development patterns can lead to increases in water
demand and cost. Large lots increase the length and thus the cost of the pipes serving households and
commercial buildings. Buildings on smaller lots are typically closer to the water main running under the
street and require a shorter branch pipe to get the water from the main to the building. Higher density
neighborhoods also have more houses per block of main, so the cost of the main will be less per house
than in neighborhoods with larger lots. Large Tots can also increase demand for water because of larger
yards. Low density systems can lead to increased water loss because of leaks, as longer pipes require
more pressure to push the water through the system.
Rural development
Since the 1990 census, the population of
Dubuque County has been steadily
expanding. As of the 2010 census, the
County had regained nearly all of the
7,342 people it had lost between 1980
and 1990. However, the population did
not return to the same areas of the
County. Between 1990 and 2010, the
Dubuque's population began to
decentralize, relocating from the City of
Dubuque to the smaller cities and the
unincorporated rural areas of the
county. The pace of the decentralization
Map 1.3 Building Starts 2000 -2010
4,4
New Dee Ilmcm
P.. 3q' wo Mile
n I;
11111 or
- .
),
-
11. 7,
n
a— - -- — —
has accelerated within the last ten years. Source: Dubuque County Assessor and City of Dubuque Assessor
Map 1.3 displays new building starts between 2000 -2010. The map shows large amounts of new
construction in the smaller cities and in the urban fringe area on the west side of Dubuque and the
surrounding unincorporated areas.
The spatial population shift of the past 20 years has resulted in expansion of public and private
infrastructure within the county. This growth pattern conflicts with the smart planning principles listed
above and conflicts with previously adopted goals and objectives. This conflict was identified in the
1969 county land use plan and was noted in the 2002 Dubuque County Comprehensive Land Use
Development Plan. The following is an excerpt from a section of the county plan entitled "Review of
Conflicting Land Use Goals and Objectives."
Dubuque County's 1969 Land Use Plan addresses, under Principal Objectives pages 24 and 25,
how important the existing community centers are as a focus for urban growth, the importance
of the services they provide, and the organized community structure which provides a means for
the development of local plans and policies to control the nature and pattern of new
development.
The Plan then goes in a different direction and addresses the Greater Dubuque Area
Unincorporated Fringe, and the projected major population growth that is expected to occur in
this fringe area and how new (unincorporated) communities will develop here and (hopefully) be
able to (financially) support basic community services, or else connect with the City of Dubuque's
utilities by major trunk lines. It goes on to say that in more remote locations, individual sewage
8
treatment and water plants may be required. The Plan does say that these (unincorporated)
communities may be formed as a result of intelligent planning and by cooperative action of
county and city government, if they are not an extension of an existing urban center. This idea
appears to open the door to a potentially great deal of unincorporated development without
providing much direction or detail on how the "cooperative action between county and city"
should occur, or when. This idea appears to be the only significant policy conflict in the County's
1969 Land use Plan, and it flies in the face of orderly incorporated community growth.1
The 2002 land use plan attempted to address these conflicting goals. Controlling urban sprawl,
encouraging growth in or near cities, and preserving rural farm character were all listed as key issues in
the 2002 plan, but as noted in Map 1.3, rural development has continued to expand since the plan was
adopted.
Return on Investment
Effective land use and utility planning are especially important during uncertain economic times. During
hard economic times, communities need to "do more with Tess." In other words, the community needs
to get more out of the investments it makes, or improve its return on investment. Communities invest
in many things, but utility infrastructure is one of the largest and most important investments a
' community will make. Communities invest in the installation and maintenance of infrastructure to
stimulate private sector investment and development, which creates value in the local economy. The
value created is taxed and the tax revenue is used in part to pay for the maintenance of the
infrastructure. If a community wants to get more value out of its infrastructure, it should consider
investing in the most productive types of development. How can a community measure the productivity
of its infrastructure investments? The City and County Assessor's place a value on all property in the
county for tax purposes. The assessors' tax records will provide an consistent measure of value for all
properties in the county.
The following is a productivity comparison of two Dubuque County properties based on assessor's tax
records. Figure 1.5 shows the two properties. Both are commercial properties located in the city of
Dubuque and both pay the same property tax rate. Property 1 is a three -story commercial building
located in an urban area with retail on the bottom floor and apartments on the top two floors. Property
2 is a large factory located in an industrial area. Figure 1.5 also includes the annual property 2011
property tax owed on each property.
Figure 1.5
1 Dubuque County, Iowa Comprehensive Land Use Development Plan. 2002. p. 49.
9
Property 1
Property 2
Property Tax
$3,369
$622,494
pee_
^111 11l .
I l'sfill 11
r
Source: Dubuque City Assessor, www.beacon.com /dubuquecounty
1 Dubuque County, Iowa Comprehensive Land Use Development Plan. 2002. p. 49.
9
Based on total property tax Property 2 is clearly the more valuable property. However, total property
tax is not the best way to measure the property's productivity and the return on the community's
infrastructure investment. Figure 1.6 uses an example to explain why total tax is not a good measure of
productivity. A community's return on investment is somewhat analogous to a family shopping for a
car. Fuel consumption is the most important feature for the family and they have narrowed their
choices down to a car and an SUV. If we used the same approach as above, the family would want to
look at the miles per tank. However, miles per tank would innacurate measure of productivity because
we know that the two vehicles have different fuel tank sizes. The best way to compare fuel productivity
is to look at the fuel economy of the vehicle. Using the fuel economy measure, we find that the car
provides more miles of travel per gallon of gas.
Figure 1.6
We can apply the same logic to the two properties. Property 2 produces much more tax revenue, but it
takes up more land and requires more infrastructure than Property 1. As a result, tax per acre would be
a more accurate measure for the productivity of these two buildings, as it accounts for differences in
each property's size, just as the MPG calculation does for the family buying the car. The results from
this example are displayed in Figure 1.7.
Figure 1.7
SUV
Car
011 III
111111 ;
t;
r
eiF ;. )Ti i ta
— :,
$622,494
Miles Per Tank
474
374
Tank Size
31 gal
16 gal
Miles Per Gallon
17
26
Source: www.fueleconomy.gov
We can apply the same logic to the two properties. Property 2 produces much more tax revenue, but it
takes up more land and requires more infrastructure than Property 1. As a result, tax per acre would be
a more accurate measure for the productivity of these two buildings, as it accounts for differences in
each property's size, just as the MPG calculation does for the family buying the car. The results from
this example are displayed in Figure 1.7.
Figure 1.7
Using the tax per acre measurement we find that Property 1 is almost 3 times more productive than
Property 2. This example is not intended to diminish the factory's contributions to the local economy.
Large industrial land uses contribute to the regional economy and employ thousands of Dubuque
10
Property 1
Property 2
011 III
111111 ;
t;
r
eiF ;. )Ti i ta
— :,
$622,494
Property Tax
$3,369
Acres
0.05
27.08
Tax Per Acre
$67,380
$22,987
Source: Dubuque City Assessor, www.beacon.com /dubuquecounty
Using the tax per acre measurement we find that Property 1 is almost 3 times more productive than
Property 2. This example is not intended to diminish the factory's contributions to the local economy.
Large industrial land uses contribute to the regional economy and employ thousands of Dubuque
10
County residents. The example was intended to show that high density urban development can provide
a high return on infrastructure investment. Investing in land uses that use infrastructure most efficiently
by adopting smart planning principles can help communities keep property taxes and utility rates low.
Many communities would spend great amounts of time and effort to attract one large factory to their
town, but updating existing infrastructure and attracting several new businesses to their downtown may
be a more practical and financially productive solution for economic development.
11
DUBUQUE COUNTY SMART PLAN
Public Infrastructure & Utilities
1. To provide, maintain, and improve a safe, cost- effective, functional, and self - supporting public
utility systems including water, sanitary sewer, storm sewer, communications, and solid waste
disposal with a focus on sustainable materials management where applicable.
1.1. Support timely cost effective delivery of services.
1.2. Perform routine maintenance and testing to ensure optimum utility provision.
1.3. Budget for short and long term system improvements.
1.4. Support ongoing improvements to facilities.
1.5. Support ongoing improvements to distribution systems.
1.6. Support ongoing improvements to landfill diversion efforts.
1.7. Comply with state, federal, and local environmental regulations.
1.8. Support the adoption of new technologies that reduce costs, improve delivery of service, and
reduce impacts on the environment.
2. To plan for, build, and improve infrastructure systems to meet anticipated growth and
development needs.
2.1. Encourage development and redevelopment in areas where infrastructure is existing or
underutilized in the cities.
2.2. Support building future infrastructure at a higher capacity for future identified growth areas
in cities.
2.3. Support municipal utility rate structures that are both adequate to meet current obligations
and future needs and are equitable for services received by residential, commercial, and
industrial users.
2.4. Investigate and implement technological advances to optimize service delivery.
2.5. Plan for orderly replacement and upgrade of public and private communication
infrastructure with attention to features, capacity, compatibility, and future growth.
2.6. Consider opportunities for buried public and private communication infrastructure during
planning for street, water, and sewer construction projects.
(2.7Removed)
2.7. Support providing sanitary sewer and water main extensions within cities in a timely manner,
when economically feasible.
2.8. Evaluate periodically the water system storage and hydraulics of cities to ensure ability to
serve future growth demands.
2.9. Support a "looped" water distribution system, where practical.
2.10. Continue to encourage and enhance downtown development by striving to meet current
parking needs and providing expansion programs that are cost - effective and innovative.
2.11. Monitor and coordinate appropriate implementation of communication, gas and electric
delivery systems.
2.12. Encourage public investments in infrastructure that will result in private- sector investments
that can financially sustain the maintenance of that infrastructure.
2.13. Evaluate and ensure the design and location of stormwater inlets and outlets are strategically
located, managing runoff as close to its source as possible, and minimizing the volume of
stormwater runoff to avoid causing problems for downstream neighbors.
3. To encourage the use of low impact development and centralized water or sewer systems to
preserve open space and prevent degradation of the air and water quality throughout the region.
3.1. Encourage the use of Low Impact Development (LID) principles in new development
throughout the region (New goal).
3.2. Encourage development to locate within existing cities and establish urban fringe areas where
adequate public utilities are planned or can be provided.
3.3. Encourage existing developments that have expanded beyond the original subdivision, to install
centralized water and septic systems in the new development and the original development, if
there has been a history of contamination problems in or adjacent to the original subdivision.
3.4. Require new developments in the unincorporated area of the County to provide for the private
long -term maintenance and operation of internal infrastructure.
3.5. Require new developments in the unincorporated area of the county to be designed for future
connection of municipal services.
4. To provide public facilities and services at levels which support a desirable "quality of life" for
current and future residents.
4.1. Require new development to fund public water and wastewater systems required to meet the
needs of the proposed development. (Original 4.1 removed, Was4.7)
4.2. Establish a system for planning purposes, which will evaluate the costs and benefits of
necessary rural services when provided to new rural growth.
4.3. Provide facilities and services in locations compatible with planned uses, populations, and
needs.
4.4. Establish a system to continuously monitor individual well and septic systems for detection of
potential off-site environmental contamination before it occurs
4.5. Evaluate the creation of rural water districts in developed areas experiencing water quality
problems, and encourage non -farm residents to join rural water districts as soon as possible
after district creation.
4.6. Evaluate the creation of rural sanitary sewer districts in developed areas experiencing septic
system problems, with the boundaries of such districts based, whenever possible, on existing
watershed areas.
4.7. Provide financial assistance for new development to over -size facilities to serve adjacent
development when the adjacent development is expected to require service.
4.8. Facilitate the incorporation of new septic system technologies into the County's health
regulations.
DUBUQUE COUNTY SMART PLAN
Public Infrastructure & Utilities
4.9. Continue to implement the State's solid waste disposal hierarchy while developing new
methods to minimize wasting and divert resources to beneficial use through comprehensive
deconstruction, reuse, recycling, composting anaerobic digestion, methane
capture /utilization, hazardous materials management, enforcement on illegal dumping and
littering, and public education programs.
4.10. Establish a system to continuously monitor the performance of stormwater BMPs, and ensure
proper maintenance is being performed as needed with each practice.
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Geology and Topography
Dubuque County is located in a unique region of the Upper
Mississippi River Basin known as the Driftless Area. The Driftless
Area covers over 16,000 square miles in the states of Iowa, Illinois,
Minnesota, and Wisconsin. The name "Driftless Area" refers to the
lack of glacial drift, the silt, clay, sand, gravel, and boulders left
behind by continental glaciers. The lack of glacial drift followed by
thousands of years of weathering and erosion have resulted in a
region of diverse topography, soils, and ecosystems. The steep
and rugged landscape is referred to as karst topography. Map 1.1
displays the boundaries of the Driftless Area.
The topography of Dubuque County ranges from gently undulating
in the southwest, to hilly and steep in the north and east. Along
the Mississippi River and its tributaries, the topography is very
steep and rugged, with high limestone bluffs and outcrops. Much
Source: The Driftless Area Initiative
of the area containing the steep terrain is heavily wooded. Map 1.2 illustrates the varying terrain across
the County.
Map 1.2 Dubuque County Topography
Source: US Geological Survey
1
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Res urces
Land Cover
The steep landscape that exists throughout much of northeast Iowa has restricted development and
farming activities. Row crop production is limited in the eastern half of the county by the region's steep
topography. Farmland in the more hilly areas of the county is more likely to be used as pasture or
woodland. According to the 2007 Census of Agriculture, 76% of the farm land in Dubuque County was
used as cropland, while across the state, 86% of the land in farms was used as cropland. Map 1.3 shows
the differences in land cover across Dubuque County.
Map 1.3 Dubuque County Land Cover
•
Source: US Geological Survey National Land Cover Database, 2006
Agriculture
Other
all Open Water
Developed, Open Space
Developed, Low Intensity
Developed, Medium Intensity
Developed, High Inlenslty
n Barren Land (Rock/Sand /Clay)
Deciduous Forest
® Evergreen Forest
Grasslands/Herbaceous
Pasture/Hay
Cultivated Crops
Wetlands
I I
1
Soil quality varies greatly across Dubuque County due to the uneven topography and prehistoric soil
erosion. Corn Suitability Rating (CSR) is used to provide a relative ranking of soils based on their
potential for row crop production. Soils with no limitations for row crop production will rate 100, while
soils with severe limitations will rate 0. Map 1.4 .displays the CSR for Dubuque County soils.
2
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Map 1.4 — Dubuque County Corn Suitability Rating
DUBUQUE COUNTY SMART PLAN
Dubuque County
Corn Suitability Rating
CSR
®81 -100 ]20 -40
61 -80 - 0 -20
44 -60
0 0.5 1 2 Miles w
1 1 1 1
Source: U.S. Department of Agriculture, Natural Resources Conservation Service
Agricultural Economy
Agriculture is an important part of Dubuque County's regional economy. The agricultural sector in
Dubuque County employs thousands of workers and produces millions in commodity sales. Many non-
farm industries such as chemical production, machinery production, and food processing link directly to
the agricultural sector. Other industries with indirect links to agriculture include freight transportation
and warehousing, wholesalers, and finance, insurance and real estate services. A 2002 study conducted
by Iowa State University found that every dollar's worth of output in Iowa's agricultural sector results in
$.63 in additional sales in the rest of the Iowa economy.1 Over the past several years the agricultural
sector has fared well despite the downturn in the overall economy. According to a 2012 Food and
Agricultural Policy Research Institute report, U.S. farmers earned a record net income of $98 billion in
2011.2 The primary reason for the success of the agriculture sector has been high commodity prices that
have resulted from increased exports and increased ethanol consumption. Figure 1.1 shows the rise in
1 http: / /www.econ.iastate.edu /sites/ default / files /publications /papers /p7185- 2002- 12- 01.pdf, 17.
2 http: / /www.fapri.missouri.edu /outreach /publications /2012 /FAPRI MU Report 01 12.pdf, 62.
3
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
corn and soybean prices since 2000. High commodity prices have led to an increase in land values.
Figure 1.2 displays the dramatic rise in land use prices in the past five years.
Figure 1.1 Figure 1.2
$14.00
$12.00
,, $10.00
$8.00
Q.
e $6.00
0
$4.00
$2.00
$0.00
Average Annual Corn & Soybean Prices
2000 2002 2004 2006 2008 2010 2012
-Corn —Soybeans
Source: Iowa State University Extension
Agricultural Issues
Soil Erosion:
$8,000
$7,000
$6,000
$5,000
N $4,000
v $3,000
Historic Dubuque Count, Land Values
.� $2,000 ��-
$1,000
$0 1 -x-
1965 1970 1975 1980 1985 1990 1995 2000 2005 2010
— Actual Dollars 2011 Dollars
Soil erosion is an important issue for agricultural producers in Dubuque County because it removes
topsoil, reduces levels of organic matter, and contributes to the breakdown of soil structure. Soil
erosion creates a Tess favorable environment for plant growth. Nutrients that are removed by erosion
can no longer support plant growth, but can accumulate in water and cause problems such as algal
blooms. Soils that are lost to erosion cannot be replaced, so erosion prevention is key to maintaining
high agricultural soil quality. Many farmers use conservation practices to prevent erosion and maintain
the quality of their land. Some of the most popular practices include:
Contour Farming— Uses crop row ridges, built by
tilling and planting on the contour to create
hundreds of small dams that slow water flow,
increase infiltration, and reduce erosion.
Grassed Waterways — Creates a natural drainage
way that is graded to form a smooth bowl- shaped
channel and is seeded to sod - forming grasses.
Runoff flows across the grass rather than tearing
away soil and forming a gully.
Terracing — Breaks up long slopes and usually
follows the contour. As water makes its way down
a hill, terraces serve as small dams to intercept
water and guide it to an outlet.
4
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Land Development:
The Toss of agricultural land to non - agricultural urban and suburban development is an issue facing
Dubuque County farmers. New non - agricultural buildings were most prevalent in the areas surrounding
the communities of Dubuque, Asbury, and Peosta. Map 1.5 shows new the new non - agricultural
building starts for Dubuque County between 2000 and 2010. The new buildings are predominantly
single - family homes that are scattered across agricultural areas. This type of residential development is
a concern for the agricultural industry because it can lead to the Toss of productive agricultural land,
increased potential for conflict between agricultural and non - agricultural land uses, and increased traffic
on rural roads.
Map 1.5 - New Non Agricultural Building Starts 2000 -2010
•
\ r N
las
•
51
New Non - Agricultural
Building Starts
2000 -2010
- New Building Starts
City Limits
1
Mlle
0 1 2 3 4 5
Data Source: Dubuque County Assessor, 2012 &
City of Dubuque Assessor, 2012
Source: Dubuque County Assessor, 2012 & City of Dubuque Assessor, 2012.
Air Quality
Because of its rural setting, Dubuque County tends to have better air quality than heavily populated
urban areas. However, this is not a reason to ignore this issue. Poor air quality is unhealthy for
everyone, especially children, the elderly, and people with respiratory conditions like asthma. Cleaner
5
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
air requires local and regional efforts. Consortium members will need to work together and with the
Iowa Department of Natural Resources (DNR) and the US Environmental Protection Agency (EPA) to
create workable solutions for air quality issues.
The Federal Clean Air Act regulates six common pollutants: Coarse Particles (PM 10), Fine Particles
(PM2.5), Ozone (03), Lead (Pb), Carbon Monoxide (CO), Nitrogen Dioxide (NO2), and Suffer Dioxide
(SO2). The pollutants listed above are called "criteria" air pollutants because the EPA uses human
health -based and environmentally -based criteria for setting limits on the amount of these
pollutants that are permissible in the ambient air. Of the six criteria pollutants, particle pollution and
ozone represent the most widespread health threats. The EPA designates areas that meet the criteria as
"attainment areas" and areas that exceed the criteria as "non- attainment areas." In addition to
environmental and human health concerns, a non - attainment designation can bring many negative
consequences including: increased complexity and cost of environmental permitting for public and
private projects and negative perception of business considering the area for expansion.
Although Dubuque County is currently a clean air attainment area, the region's air quality is approaching
EPA non - attainment levels. Currently, fine particles (PM 2.5) represent the greatest concern for the
region. The EPA has set Dubuque County's PM 2.5 standard at 35 micrograms per cubic meter of air
(ug /m3). The nearest PM 2.5 monitor is located 13 miles north of Dubuque in Potosi, Wisconsin. Figure
1.3 shows that between 2005 and 2008 measurements at the Potosi monitor were just under the
acceptable standard. In response to the air quality data, the City of Dubuque, Dubuque Metropolitan
Area Transportation Study (DMATS), and the Metropolitan Planning Organization for the region, formed
a clean air task force. The task force is working closely with local industry, public and private school
systems, and the regional transit systems to improve the overall air quality of the region and keep PM
2.5 measurements below the threshold level.
Figure 1.3
6
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Micrograms per cubic liter (ug /m3)
Potosi, WI 24 hour PM 2.5 Observations
Averaged Over 3 Years
40
35 PR*
36
30
25
20
15
10
5
-r i
1999- 2000- 2001- 2002- 2003- 2004- 2005- 2006- 2007- 2008- 2009-
2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
EPA
Standard
Data: Iowa DNR and Wisconsin DNR
Water Quality
Healthy water is important to human health, but is also necessary for a great number of other reasons
such as aquatic life, recreational use, wildlife habitat, economic value, and aesthetic value. Water quality
is measured by various standards, but primarily involves studies concerned with excessive sediment and
nutrient deposits or bacteria levels. Clean and clear waters ultimately limit aerobic bacteria, which
consume dissolved oxygen. Higher dissolved oxygen levels within aquatic habitats allow for a more
diverse range of aquatic life and a healthier atmosphere for the land animals (including humans) who
frequent these environments.
Throughout Dubuque County, water quality changes with each watershed in the region. Fortunately,
largely due to high levels of public interest in water - related recreational activities, several watersheds in
the region play critical roles in protecting water quality. These efforts focus on both smaller, tributary
streams and the Mississippi River itself. It is important to gather water quality data on both small
tributaries and larger streams throughout Dubuque County. Every watershed in the region flows into
the Mississippi River, a river that is classified as an impaired waterbody through much of its course
towards the Gulf of Mexico. The Mississippi River is the main source that is causing the "dead zone" or
hypoxic area in the Gulf of Mexico. The dead zone is caused by nutrient deposits from the runoff
upstream into the Mississippi River, particularly the nutrients of nitrogen and phosphorous.
In order to diagnose water quality issues and devise solutions, scientific monitoring must be conducted.
Monitoring water quality in the region has been done primarily through the Iowa DNR, the City of
Dubuque, the Dubuque Soil and Water Conservation District (SWCD), and a volunteer citizen -based
7
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
program called IOWATER. To learn more about IOWATER, view water quality data, and seek relevant
information on how anyone can be involved in this community effort, visit www.iowater.net. IOWATER
monitors the physical aspects of water quality and the riparian area, as well as the chemical parameters
in water. These would include nitrates, nitrites, phosphorus, chloride, temperature, dissolved oxygen,
ph, and bacteria.
The Catfish Creek Watershed, which flows through Dubuque County and the cities of Dubuque, Peosta,
Asbury, and Centralia, has had extensive water quality monitoring done throughout the watershed.
Bacteria limits are far above the "safe" or approved IDNR standard. Nitrates and chloride are also
considered to be pollutants of concern in Catfish Creek. Additional monitoring is being performed
throughout the watershed, and recently, a Watershed Management Authority Board was formed to
serve as an advisory committee to help further educate and inform community leaders and residents
within the Catfish Creek Watershed.
The majority of Dubuque County residents get their drinking water from underground sources by public
or private well. Therefore, protecting groundwater quality is an important environmental health issue
for Dubuque County communities. Groundwater quality is especially important in the County's rural
areas and small communities, as they do not have the water testing and treatment resources of larger
municipal systems. Iowa officials are unsure of how many private wells deliver unsafe water. However,
of the nearly 10,000 private water supply samples submitted to the State annually, approximately 40%
show unsafe bacterial content and 15% to 20% exceed the maximum recommended level for nitrate in
drinking water.3 There are a large number of potential ground water contaminants, but coliform
bacterial and nitrates are commonly used as general indicators of water quality. Private well owners
interested in testing their water quality or improving the safety of their well should contact the Dubuque
County Health Department for more information.
Conservation Areas
Dubuque County maintains 16 conservation areas for public use. These properties are very diverse in
both land and wildlife. The uses in these areas range from fishing, hunting, hiking, wildlife observation,
educational pursuits, golfing, boating, bicycling, camping, picnicking, and much more. Along with all the
activities the County provides for the public, they protect the special flora and fauna found in the
Driftless Area.
Dubuque County is located in the Paleozoic plateau which exhibits deep valleys, high bluffs, caves,
crevices, and sinkholes. The stream valleys are deep, narrow and v- shaped, exposing underlying
sediment bedrock. These exposed rock formations include fossil rich Ordovician formations at the base
of the hills, and Silurian formations near the tops of the hills.
The landscape of Dubuque County is one of diversity and beauty. There are canyons, deep valleys,
algific slopes, remnant prairies, sprawling oaks, bogs, and much more yet to be discovered. Dubuque
a Glanville, Tom. "Good Wells for Safe Water" Iowa State University Extension. March 3, 1993.
http: / /www. extension. iastate .edu /Publications /PM840.pdf
8
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
County hosts residents and visitors of all ages to the area to discover the greatness Dubuque County
offers.
Plants and Wildlife
Dubuque County boasts several rare and threatened plant and animal species. Summers are a great
time to see the beauty of the tropics in the Midwest; Cerulean Warblers, Scarlet Tanagers, Wood
Thrush, Ovenbirds, Bobolinks, Henslow sparrows, Indigo Buntings, Rufous -Sided Towhees all nest here in
the summer and provides a glimpse into the magic of birds. Bobcats and river otters have been
observed at Whitewater Canyon and along the Heritage Trail. Pohlman Prairie is a place to enjoy a
plethora of rare butterfly species along with a beautiful remnant hilltop prairie. Along with discovering
unusual plants and animals, the streams are fantastic for fishing. Dubuque boasts several cold water
trout streams (some with natural reproduction), as well as small mouth bass fishing, river access at three
County parks, and at Heritage Pond, which is a great family fishing location.
Dubuque County has no shortage of rare and threatened plants: Saxifrage, Muskroot, Sullivantia,
Shrubby cinquefoil, Canada yew, Monkshood, and more. There are also rare and threatened animals
that live in the Dubuque area, such as, the Indiana Bat, Pleistocene snail, and spotted skunk.
Additionally, animals of concern include the red - shouldered hawk, northern harrier, flying squirrel, and
bull snakes. Invasive plant species are also a concern across Dubuque County. The most predominant
invasive species are: garlic mustard, buckthorn, honeysuckle, and wild parsnip. The Dubuque County
Conservation Board and several other conservation groups in the area are working towards mitigating
invasive species presence in Dubuque County.
Description of Government Consortium Programs
The federal government, the State of Iowa, and Dubuque County have several different conservation
programs in which landowners and /or cities can participate. These programs often provide financial
assistance for conservation practices, and are listed below. For more information on a specific program,
contact the Dubuque Soil and Water Conservation District (SWCD)office, located in Epworth, IA.
State Programs
■ Conservation Cost- Sharing
• State Revolving Fund (SRF)
• Water Quality Projects
■ Stormwater Best Management Practices
Loan
• Resource Enhancement & Protection
(REAP)
State Programs
9
Federal Programs
• Conservation Reserve Program (CRP)
• Wetlands Reserve Program (WRP)
• Environmental Quality Incentives Program
(EQIP)
■ Mississippi River Basin Initiative (MRBI)
■ Wildlife Habitat Incentive Program (WHIP)
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Conservation Cost - Sharing — Fund allocations are made to Soil and Water Conservation Districts, where
Commissioners set priorities for their use and field office staff assure the technical quality of those
practices that are approved and built. These practices are subject to long term maintenance
agreements.
State Revolving Fund (SRF) - The State Revolving Loan Fund is a source of low -cost financing available to
landowners. This opportunity is available specifically to assist and encourage landowners to address and
explain source pollution of Iowa streams and lakes. Applications are accepted at any time during the
year, and require no cash up front. Interest rates on a revolving loan are well below other financing
sources.
Water Quality Projects - Water quality protection projects protect the state's surface and groundwater
resources from point and non -point sources of contamination. Authorized under Iowa Code Chapter
161C, projects are developed through a locally led process and are initiated by Soil and Water
Conservation Districts. SWCD's are responsible for coordinating the resources and programs of a variety
of organizations to achieve local objectives. Project applications consider the importance of the resource
to be protected, the nature and extent of the water quality concern, proposed solutions, landowner
interest, and the overall cost effectiveness of the project. Water quality protection projects commonly
use the watershed approach to address water quality problems. This approach involves the assessment
of all possible sources that may have an effect on water quality in the project area. It provides the most
comprehensive, efficient and effective way to achieve soil and water quality protection objectives.
Successful projects usually have a high level of community support and include strong public information
and education programs. They also feature partnerships with federal, state and local agencies and
organizations. These projects have effectively improved water quality in watersheds above publicly
owned lakes, trout streams, high use recreation areas, drinking water sources, urban developments and
aquifer recharge areas. Practices commonly utilized for those projects include permanent soil and water
conservation practices (terraces, basins, etc.), temporary management practices (no -till, nutrient
management, etc.) as well as urban erosion and storm water management practices (silt fences, bio-
swales, etc.)
Stormwater Best Management Practices (BMP) Loans - The Stormwater BMP Loans are a source of low-
cost financing for long term / voluntary practices that manage storm water quality. This loan
opportunity is available specifically to assist and encourage developers and cities to address non -point
source pollution of Iowa streams and lakes through implementing stormwater quality BMPs that are
included in the Iowa Stormwater Management Manual at
www.ctre.iastate.edu /pubs /stormwater /index.cfm.
Resource Enhancement and Protection Program (REAP) - REAP is a state program that invests in, as its
name implies, the enhancement and protection of the state's natural and cultural resources. Iowa is
blessed with a diverse array of natural and cultural resources and REAP is likewise diverse and far
reaching. Depending on the individual programs, REAP provides money for projects through state
10
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
agency budgets or in the form of grants. Several aspects of REAP also encourage private contributions
that help accomplish program objectives. Based on a submitted proposal and allotment, REAP funds
may be available for soil conservation practices through Soil and Water Conservation Districts. For more
information regarding REAP visit: http: / /www.iowareap.com/ .
Federal Programs
Conservation Reserve Program (CRP) - The Farm Service Agency (FSA) and Natural Resources
Conservation Service (NRCS) administer the CRP. This program has two ways to enroll. The program
cost - shares tree planting and grass establishment on highly erodible land and pays landowners an
annual rental payment for up to 15 years. Although the date of the next general CRP sign -up is
uncertain, there is a continuous sign -up for highly sensitive environmental areas such as riparian areas
adjacent to streams and creeks, bottomland areas, and living snowfences. Through the continuous
sign -up program, landowners can find out if land is eligible, what payment they will receive, and may
sign up at any time. Eligible land is automatically accepted into the continuous CRP program. Under the
general CRP sign -up, landowners can receive around $100 per acre land rental rate and 50% cost -share
reimbursement for installation of the CRP practice. For more information on CRP visit:
http: / /www.fsa.usda.gov /.
Wetlands Reserve Program (WRP) - Iowa landowners are interested in the WRP both environmental and
economic reasons. The primary reason for participation is economic. Continuing to farm wet or
frequently flooded marginal soils gives less financial return than does a wetland easement in a U.S.
Department of Agriculture (USDA) program. Also important to the farmers entering the programs are
the benefits wetlands give to wildlife and water quality. Iowa's wetland restoration goal is to reestablish
wetland ecosystems. Restoration activities typically include tile breaks, ditch plugs, shallow excavations,
water control structures, and seedings of native grasses and forbs. Under WRP, administered by the
NRCS, landowners can restore wetlands through permanent easements, a 30 -year easement, or by
restoring the land under a restoration cost share agreement. For more information on WRP visit:
http://www.nrcs.usda.gov/programs/wrp/states/ia.html.
Environmental Quality Incentives Program (EQIP) — EQIP is a voluntary conservation program of the
United States Department of Agriculture (USDA) Natural Resources Conservation Service (NRCS) that
promotes agricultural production and environmental quality. This program is available to farmers and
offers financial and technical assistance to install or implement structural and management practices on
eligible agricultural land. Applications for EQIP can be made at local NRCS offices.
The EQIP application is based on decisions reached with producers during the conservation planning
process. EQIP applications are prioritized for funding using a state or locally developed ranking
worksheet that generally considers cost - effectiveness, resources to be treated, meeting national EQIP
priorities, compliance with federal, state or tribal environmental regulations or reducing the need for
future regulations and, to a degree, the location of the contract. Funded EQIP applications result in a
11
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
contract which lists the practices to be applied along with an application schedule and federal funds
committed. Conservation practices applied with EQIP funds are to be maintained for the service life of
the practice, which may be longer than the term of the EQIP contract. The minimum contract length is
one year after the implementation of the last scheduled practice with a maximum length of ten years.
The implemented practices are subject to NRCS technical standards. Farmers may elect to use NRCS or a
Technical Service Provider for EQIP technical assistance. For more information on EQIP, visit:
http: / /www.ia.nres.usda.gov /programs /stateegip.html .
Mississippi River Basin Initiative (MRBI) - To improve the health of the Mississippi River Basin, including
water quality and wildlife habitat, the NRCS is developing the Mississippi River Basin Healthy
Watersheds Initiative. Through this new Initiative, NRCS and its partners will help producers in selected
watersheds in the Mississippi River Basin voluntarily implement conservation practices that avoid,
control, and trap nutrient runoff; improve wildlife habitat; and maintain agricultural productivity.
These improvements will be accomplished through a conservation systems approach to manage and
optimize nitrogen and phosphorous within fields to minimize runoff and reduce downstream nutrient
loading. NRCS will provide producers assistance with a system of practices that will control soil erosion,
improve soil quality, and provide wildlife habitat while managing runoff and drainage water for
improved water quality.
The Initiative will build on the past efforts of producers, NRCS, partners, and other State and Federal
agencies in the 12 -State Initiative area to address nutrient loading in the Mississippi River Basin.
Nutrient loading contributes to both local water quality problems and the hypoxic zone in the Gulf of
Mexico. The 12 participating States are Arkansas, Kentucky, Illinois, Indiana, Iowa, Louisiana, Minnesota,
Mississippi, Missouri, Ohio Tennessee, and Wisconsin.
NRCS will offer this Initiative in Fiscal Year 2010 through 2013, dedicating at least $80 million in each
year. This is in addition to the agency's regular program funding in the 12 Initiative States and funding
by other Federal agencies, States and partners and the contributions of producers. For more
information on MRBI please visit: http: / /www.ia.nres.usda.gov /programs /MRBI.html.
Wildlife Habitat Incentive Program (WHIP) - WHIP provides cost -share reimbursement for wildlife
habitat practices. A portion of Iowa's WHIP allocation will be set aside for woodland wildlife habitat
improvement. WHIP will also cost -share on wildlife practices that improve grasslands, riparian corridors,
shelterbelts, windbreaks, native prairie restoration, and aquatic habitat. For more information on WHIP
visit: http: / /www.ia.nres.usda.gov /programs /whip.html.
Summary
12
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
Dubuque County has a diversified landscape, consisting of rolling hills and impressive bluffs, as well as
high quality agricultural land composed of row crops and pasture ground. Both air quality and water
quality vary across the region and are continually being monitored to improve conditions. Several
different conservation programs are available through the Natural Resource Conservation Service and
the Dubuque Soil and Water Conservation District to assist both cities and landowners installing
conservation practices on the ground. Wildlife opportunities are abundant in Dubuque County and offer
a diverse set of flora and fauna opportunities to thrive in our landscape. Preserving and restoring
Dubuque County's landscape, air quality, water quality, and wildlife, while protecting our agricultural
land, is an integral part of our region's natural resources.
13
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
1. To encourage the creation of a sustainable environment that successfully balances urban growth
and development with ecological constraints.
1.1. Encourage expansion and recruitment of environmentally conscious businesses.
1.2. Encourage existing businesses to incorporate sustainability efforts into their operations.
1.3. Maintain and plan for biodiverse green space as development and public improvements occur.
1.4. Identify, preserve, and promote linkages or connections of open /green spaces.
1.5. Promote programs and enforce ordinances that minimize soil erosion.
1.6. Promote outdoor lighting practices that minimize light pollution.
1.7. Encourage existing businesses and residential subdivisions to add retention basins and /or on-
site infiltration systems to further control flooding and runoff.
1.8. Promote appropriate lifestyles and infrastructure changes to reduce causes and impacts of
global and local climate change.
1.9. Identify and plan for future locations for active and passive park and recreation areas that
protect natural places that are unique to Dubuque County.
1.10. Develop more recreational trails around natural and wetland areas to preserve and utilize
these areas.
1.11. Encourage active, physical mobility (bike, walk, mass transit) to areas of daily living.
1.12. Create and maintain urban forest inventories and plan for planting of diverse native species of
trees throughout the county.
2. To promote the protection, preservation, and enhancement of the region's bluffs, prairies,
wetlands, waterways, scenic views, vegetation, wildlife, and all natural areas
2.1. Prevent the degradation of environmentally sensitive natural resources such as stream banks,
flood plains, steep slopes, slide prone areas, natural forests, wildlife habitat, areas containing
shallow soils, karst areas, and endangered plants and animals.
2.2. Promote identification, restoration, and protection of rare, native, and sensitive habitat
(including prairies and woodlands), and areas that contribute to the natural character of the
region with concern to the evolving understanding of expertise in current management
techniques.
2.3. Encourage protection and restoration of sensitive areas as development and redevelopment
occurs, including along the riverfront bluffs.
2.4. Encourage environmentally appropriate public use of, and access to, the region's bluffs,
wetlands, and waterways.
2.5. Partner with community groups to demonstrate and educate the community on best
management practices for sustainable design.
2.6. Encourage reduction of non - native, invasive plant and animal species and maintain an
appropriate balance of native species.
1
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
2.7. Promote preservation of private and public lands which contribute to the area's natural
character, through connecting green belts, wildlife refuges, or passive recreational areas.
2.8. Encourage owners of land which contains environmentally sensitive natural resources or
contributes to the natural character of the region, to preserve these areas by conservation
easement, lease, deed restriction, or other formal method.
2.9. Obtain conservation easements for the preservation of agricultural land near the Mississippi
River, such as the Farmland Protection Program available through the U.S. Dept. of Agriculture.
3. To recognize agricultural land outside the urban fringe areas as an important natural resource of
the region, and to preserve agricultural soils that have historically exhibited high crop yields and
are considered most suitable for agricultural production.
3.1. Discourage development of productive agricultural soils by nonfarm uses in the non - fringe
areas.
3.2. Research the possibility of using the Land Evaluation and Site Assessment (LESA) system and a
Corn Suitability Rating of45 to be applied by the County for the preservation of agricultural
land areas designated on the Future Land Use Development Map on sites proposed for non-
farm development.
3.3. Consider other factors besides Corn Suitability Rating to determine whether agricultural land
preservation is appropriate; such as, physical characteristics and topography of the property,
location of the property and the compatibility of surrounding land uses, Land Capability
Classification, and historic yields per acre of the property.
3.4. Support economic development efforts to diversify the farm economy through "value added"
products, organic farming, and alternative crops and livestock.
4. Encourage farming techniques and soil conservation practices that will protect and conserve top
soil and prevent degradation of water resources.
4.1. Encourage landowners to work with the Natural Resource Conservation Service (NRCS) and the
Dubuque Soil and Water Conservation District (SWCD) to install conservation practices that
protect soil loss and water quality.
4.2. Educate and inform landowners of both federal and state cost -share programs, which provide
incentives for landowners to enroll in conservation programs and implement conservation
practices.
4.3. Support the Dubuque Soil and Water Conservation District Commissioners by partnering on
watershed projects and /or conservation practices throughout the community.
4.4. Promote the protection of wetlands, and /or sensitive areas, which play a crucial role in our
local and global ecosystem.
4.5. Encourage landowners to leave adequate buffers between agricultural land and waterways.
4.6. Encourage landowners to not fragment land, but rather leave fencerows, timber areas, and
riparian areas for wildlife and waterway protection.
2
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
5. To minimize the conflicts between agriculture and non -farm rural development.
5.1. Discourage non -farm uses from locating outside of urban areas, or limit such uses to areas that
are appropriate for the development, are least disruptive to the area's natural character, and
are designed to blend with the area's natural character as much as possible.
5.2. Provide appropriate environmentally sensitive transition areas between agrarian or natural
areas and developing areas.
5.3. Discourage non -farm development in agricultural areas that may hinder efficient farming
practices, agricultural operations, and the ability of the agricultural community to maintain and
expand agriculture activity.
5.4. Permit agricultural services, businesses, and industries that serve the local agricultural
community in rural areas if compatible with adjacent uses, and located along a road that is
adequate to support projected traffic demand.
6. To promote conservation practices that result in responsible use of non - renewable natural
resources.
6.1. Consider the potential for open space in any actions relative to land use.
6.2. Promote awareness and use of alternate, renewable resources.
6.3. Remove barriers to, explore incentives for, and encourage green building and landscaping
principles.
6.4. Promote programs to improve energy efficiency.
6.5. Promote planting and preserving trees to reduce energy use.
6.6. Promote walking, mass transit use, and cycling through infrastructure development to reduce
energy consumption and to improve citizen and community health.
6.7. Encourage public organizations to lead by example by purchasing and using energy and fuel
efficient vehicles.
7. To educate citizens about environmental issues affecting their lives and their community.
7.1. Partner with educational institutions and media to report status of environmental indicators
trends to the community.
7.2. Encourage ongoing environmental education programs for people of all ages, including but not
limited to the human health effects of environmental issues and problems.
7.3. Encourage coordination of community organizations concerned with environmental issues and
local ecosystems.
8. To protect and preserve existing water and air quality and ensure that future water and air quality
is safeguarded.
8.1. Identify and develop potential controlling measures to safeguard existing and future water and
air quality.
3
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
8.2. Ensure that all new development meets the applicable standards for water and air quality
controls and investigate improvements to standards when necessary.
8.3. Protect, control, and maintain water distribution systems to preserve water quality and meet
or exceed state and federal mandates.
8.4. Promote ground water protection and adequate water quality and quantity of our streams and
rivers by expanded infiltration.
9. To assure appropriate control, collection, disposal, and per capita reduction of stormwater,
wastewater, solid wastes, and household hazardous wastes.
9.1. Promote reduction and proper disposal of business and household hazardous waste, including
purchasing alternatives:
9.2. Promote reduction, proper collection, and disposal of solid wastes in accordance with
environmental and aesthetic standards.
9.3. Prevent toxic waste discharge into the wastewater treatment system and /or the environment
through education, monitoring, and enforcement.
9.4. Support the Dubuque Metropolitan Area Solid Waste Agency's various materials diversion
programs.
9.5. Promote a safe and sanitary environment along streets, alleys, and other properties.
9.6. Promote implementation of best management practices in the collection and disposal of
stormwater and wastewater.
9.7. Encourage natural infiltration from rainfall and snow melt to replenish groundwater and
recharge springs and aquifers.
10. To promote residential and business programs that reduce, reuse, recycle, and safely dispose of
the community's discard stream.
10.1. Expand recycling efforts through increased participation and new materials, e.g. electronics.
10.2. Promote use of recycled content products, e.g. compost and environmentally preferable
purchasing.
10.3. Expand food scrap and backyard composting options and awareness.
10.4. Educate the community concerning recycling and other materials management and solid
waste minimization methods.
10.5. Promote reuse of existing buildings, deconstruction and alternative uses rather than disposal
for construction /demolition materials.
11. To promote community clean -up and beautification efforts through public and private
partnerships.
11.1. Educate the public on litter prevention and illegal dumping and enforce existing laws.
11.2. Encourage clean -up, beautification, and landscaping for the public, private, and business
sectors, i.e. parkland, roadway, and shoreline adoption programs.
4
DUBUQUE COUNTY SMART PLAN
Agriculture and Natural Resources
11.3. Encourage plantings of native species conducive to urban native wildlife, i.e. birds and
butterflies.
11.4. Encourage community and neighborhood clean up and beautification efforts.
11.5. Encourage balancing the advertising and identification needs of businesses, industries,
institutions, and organizations with on- premise and off - premise sign regulations that protect
scenic vistas, minimize sign clutter, and are consistent with local, state, and federal sign
regulations.
12. To meet or exceed all federal, state, and local regulations for environmental quality.
12.1. Gain knowledge of and promote compliance with regulations.
12.2. Support federal and state entities in their monitoring and enforcement of their regulations.
12.3. Enforce laws on illegal dumping and littering.
5
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
The success of the Smart Plan will rely on the ability of individual communities to come together as a
region to achieve a common goal. Historically, the communities in Dubuque County have a good
working relationship. Dubuque County communities are able to cooperate to complete projects of
mutual interest. Communities also work together to share information, resources, and are active in
several regional organizations. However, communities could also be taking advantage of many
opportunities for collaboration in economic development, environmental and agricultural protection,
and resource sharing. This chapter will outline current collaboration efforts within the county and
profile several regional organizations that facilitate collaboration. The chapter will also discuss past
conflicts between Dubuque County municipalities and identify opportunities for collaboration.
Recommendations included in this chapter will allow communities to prevent and resolve conflicts and
help all Dubuque County communities continue to work together to achieve their goals for the future.
Benefits of Collaboration
Dubuque County communities have taken advantage of the many benefits of strong regional
partnerships and intergovernmental collaboration. Some of the benefits of intergovernmental
collaboration include:
Cost Savings - Cooperation can save money by increasing efficiency and avoiding unnecessary
duplication. Cooperation can enable some communities to provide their residents with services that
would otherwise be too costly. Examples include shared library services, police and fire protection,
recycling of household hazardous waste, and shared government buildings (such as shared community
center).
Address Regional Issues - By communicating and coordinating their actions, and working with regional
and state agencies, local communities are able to address and resolve issues which are regional in
nature. Examples include the construction and maintenance of highways, provision of transit service,
and planning and construction of facilities for stormwater management and water supply.
Early Identification of Issues - Cooperation enables jurisdictions to identify and resolve potential
conflicts at an early stage, before affected interests have established rigid positions, before substantial
funds have been expended, before the political stakes have been raised, and before issues have become
conflicts or crises.
Reduced Litigation - Communities that cooperate may be able to resolve issues before they become
mired in litigation. Reducing the possibility of costly litigation can save a community money, as well as
the disappointment and frustration of unwanted outcomes.
Consistency - Cooperation can lead to consistency of the goals, objectives, plans, policies, and actions of
neighboring communities and other jurisdictions.
Predictability - Jurisdictions that cooperate provide greater predictability to residents, developers,
businesses, and others. Lack of predictability can result in lost time, money, and opportunity.
1
Communities in Dubuque County also have mutual aid agreements for maintaining transportation and
other public works facilities. These 28E agreements define responsibilities for road maintenance, public
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
Understanding - As jurisdictions communicate and collaborate on issues of mutual interest, they
become more aware of one another's needs and priorities. They can better anticipate problems and
work to avoid them.
Trust - Cooperation can lead to positive experiences and results that build trust and good working
relationships between jurisdictions.
History of Success - When jurisdictions cooperate successfully in one area, the success creates positive
feelings and an expectation that other intergovernmental issues can be resolved as well.
Service to Citizens - The biggest beneficiaries of intergovernmental cooperation are citizens for whom
government was created in the first place. They may not understand, or even care about, the intricacies
of a particular intergovernmental issue, but all residents can appreciate their benefits, such as cost
savings, provision of needed services, and a strong economy.
Current Collaboration
Local governments in Dubuque County are constantly working together and with regional, state, and
federal government agencies to provide the highest level of service to their citizens.
Intergovernmental Agreements
Dubuque County communities work together using a combination of formal and informal agreements to
provide services to their citizens. Formal Municipal agreements are generally referred to as 28E
agreements as they are permitted under chapter 28E of the Iowa Code. The chapter permits "state and
local governments in Iowa to make efficient use of their powers by enabling them to provide joint
services and facilities with other agencies and to co- operate in other ways of mutual advantage.i1
Examples of 28E agreements in Dubuque County include:
Catfish Creek Watershed Management Authority —The CCWMA's mission is to improve water quality,
reduce water quantity, promote groundwater recharge, and to protect, promote, and preserve ground
water resources within the watershed. CCWMA members include Dubuque County, and the cities of
Dubuque, Asbury, and Centralia, and The Dubuque Soil and Water Conservation District.
Mutual Aid Agreements — Mutual aid agreements provide the procedures for sharing of resources
between communities. Communities in Dubuque County have entered into agreements for sharing fire
response, ambulance services, law enforcement, and criminal investigations. The Dubuque County
Emergency Management Agency is responsible for establishing local mutual aid arrangements, and
coordinates with Iowa Homeland Security and Emergency Management to ensure the emergency
management and response for communities have adequately planned and are well- equipped, trained,
and exercised.
1 Iowa Code Chapter 28E.1.
2
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
transportation, landfill operation and maintenance, and building and facilities maintenance, among
others.
The above list represents a small selection of the active 28E agreements in Dubuque County. The Iowa
Secretary of State maintains an online database of 28E agreements. The database can be used to find
information on 28E agreements between local governments in Dubuque County. The database is
located at: http: / /sos.Iowa.gov/ 28E /Controller.aspx ?cmd= SOSSearch.
Informal Collaboration
In addition to formal 28E agreements, communities in Dubuque County also work together through a
variety of informal agreements and community organizations. The Greater Dubuque Development
Corporation (GDDC) has made a commitment to working with all communities in Dubuque County.
GDDC has been especially helpful in working with smaller communities to attract prospective employers,
coordinate infrastructure improvements, and finance projects through programs such as Tax Increment
Financing. Many communities also participate in inter - community recreation activities. For example,
Dyersville has youth baseball, softball, and soccer leagues that includes players from the western half of
the County. Communities also meet to cooperate and share ideas. Dubuque County city clerks meet
quarterly to discuss city issues and learn about new programs. Communication between city clerks leads
to sharing and trust between communities involved.
Regional Organizations
ECIA
The East Central Intergovernmental Association is a membership sponsored organization of local
governments in Cedar, Clinton, Delaware, Dubuque, and Jackson counties. Cooperative effort, through
ECIA membership, provides greater resources to local governments than they would be able to afford
individually. The sharing of resources and discussion of common concerns vastly improves the quality
and consistency of solutions to local and regional problems. Costs are held at a level that allows all local
governments in the region to participate.
ECIA provides numerous planning, technical, and management resources to assist local governments in
reaching and implementing decisions. Services provided by ECIA cover six broad categories: Community
Development, Economic Development, Transportation Planning, Housing Assistance, Employment and
Training, and Rural Transit Services.
Transportation
The Dubuque Metropolitan Area Transportation Study (DMATS) and Regional Planning Affiliation 8 (RPA
8) are regional agencies that plan for the future of the regional transportation network. Both agencies
are lead by policy boards that are made up of representatives from local governments. Policy board
members work together to allocate funding to projects that will help maintain and improve the regional
transportation system.
Smart Planning Consortium
3
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
The Smart Planning Consortium is a regional organization in Dubuque County that was created to
develop this plan. After the completion of the Smart Plan, the Smart Planning Consortium will continue
to exist and will remain active in the County. The primary objectives of the consortium will be to ensure
the implementation of the Smart Plan and see that the members review and revise the plan as
necessary. The consortium will also serve as a facilitator for collaboration between communities.
Communities will meet to discuss issues and identify potential areas for collaboration on regional and
local projects. For example, planning improvements for Heritage Trail is a large -scale project that would
benefit many communities across the region and would require regional coordination. A Main Street
program is a local project, but many communities may have similar programs and could share resources
and provide advice on how to improve their downtowns. Communities could also participate in regional
efforts to promote local tourist attractions in a regional context.
Conflicts
Dubuque County communities work together to provide the best services possible to their citizens;
however, conflicts between communities have arisen in the past. Land use and land development issues
can be the cause of conflicts between municipalities. Land is an essential commodity for community
growth and is in limited supply. The result can be a competitive atmosphere that can result in conflict.
For the most part, Dubuque County communities take a cooperative approach to new development, but
land use development conflicts have occurred between cities and Dubuque County in various ways and
intensities. This section discusses some of the conflicts that have occurred and provides methods for
improving conflict resolution within the County.
City - County Conflicts
Conflicts between cities and the County can stem from rural developments outside of communities in
the unincorporated area of the county. When developments are approved just outside of incorporated
cities, communities can miss out on opportunities to use their excess utility capacity and expand their
tax base. New residents may also increase demand on public facilities such as city streets, parks, and
pools without contributing to the full expenses of these facilities. Greater traffic volumes on city streets
will hasten roadway deterioration and require the addition of traffic control devices, all of which
increases the communities' expense with little return through municipal property taxes or fees.
There are also rural development situations adjacent to a city boundary, when the County assumes that
the city would automatically annex the area following development. Such annexations do occur
occasionally, but just as often, they do not because the city does not have any extra utility capacity or
cannot afford to extend utility lines, or the development does not meet city standards.
Iowa Code gives cities that have adopted subdivision ordinances the option to review subdivision plats
that are within two miles of their city's boundaries. Fifteen cities in Dubuque County have adopted a
subdivision review ordinance for this two -mile extraterritorial jurisdiction (ETJ). The County notifies
these fifteen cities about subdivision applications within their ETJ area. The County does not notify
cities that have not adopted ETJ about subdivision plats and new developments.
4
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
City — City Conflicts
Annexation is an issue that has created conflicts between cities all over the United States. Cities annex
land to provide space for new development. As a city grows it may find itself in competition with
another city over a parcel of land. In Dubuque County, the boundaries Asbury, Dubuque, and Sageville
are directly adjacent, and several other cities are separated by Tess than two miles. Annexation conflicts
in Dubuque County have not risen to the extreme levels seen in other communities, but as cities
continue to expand there is an added potential for conflict.
Development conflicts between cities can also occur in unincorporated areas that are under a city's
extraterritorial subdivision review jurisdiction (ETJ). Several communities within the county have
overlapping ETJ subdivision review boundaries. Development conflicts between cities can arise in these
overlap areas. Cities with overlapping subdivision review boundaries can establish mutual subdivision
regulations through a 28E intergovernmental agreement with each other and /or the County. If no
agreement is in place then the city that is closest to the boundary of the subdivision shall have authority
to review the subdivision. Currently, no cities in Dubuque County have ETJ subdivision review
agreements in place. Map 1.1 highlights the overlapping ETJ mile subdivision review boundaries within
Dubuque County.
Map 1.1 Extraterritorial Subdivision Review Boundaries
Extraterritorial Jurisdiction
Cap Gc; perete Lundy
1-1 C i Extrobrriadal Jurisdcticn 0 5
j Ch.ari3ppnq ETJS WI Miles
11
N
Data: Dubuque County
5
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
Resolving Conflicts
If conflicts do occur, communities may use a dispute resolution process that provides a low cost flexible
approach to resolving conflicts. The process works to resolve actual and potential conflicts between
governmental entities through open dialog and cooperative initiatives. The principal benefits of
government entities utilizing an alternative dispute resolution process to resolve conflicts include:
• Saving time and legal expenses
• Having greater control over the dispute resolution process
® Resolving conflicts in a more creative way than might be possible if it were left to a decision by a
judge or jury
• Greater privacy in resolving disputes than is afforded in a courtroom
® Responding to conflict in a rational and courteous manner can increase communication, foster
positive intergovernmental relationships, provide an opportunity for learning, and broaden
perspectives and solutions.
Figure 1.1 shows an example if a dispute resolution process. The intent of the process is to resolve as
many conflicts as possible at the lowest steps on the ladder. If the dispute is not resolved at the lower
stages, the dispute moves up the ladder. It is in the best interest of all parties involved to resolve the
dispute at the lower stages on the ladder, as both the cost and duration of the process increase at the
higher stages and the involved parties have less control over the outcome.
Figure 1.1 The Dispute Resolution Ladder
R
alhnran;ul
0.111,1 r "Mho,
11 11.11r•rlf•`
1 1111 olio 1 +111 (I�r11111r 11r 1x111 r1 i1�rr
Source: Washington County, WI Comprehensive Plan: 2035
6
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
Preventing Conflicts
In most cases, communities can avoid conflicts by establishing agreements and developing consistency
in their local polices. Working closely with other communities will help all parties involved identify and
resolve potential conflicts at an early stage, before affected interests have established rigid positions,
before the political stakes have been raised, and before issues have become conflicts or crises.
Municipal Agreements
Currently land development conflicts are resolved as they arise, but this process can be highly
contentious and does not always produce the most efficient results. Communities can avoid these
issues by entering into agreements that will improve the land development process and provide the best
opportunity for orderly planning, development and the provision of municipal services.
Communities can prevent many annexation conflicts by establishing an annexation agreement before
problems arise. Under the agreement both sides delineate future annexation areas for each community
and agree to annex only the land within their area. The agreement can also lay out easement
agreements for future utility extensions
Communities can also use 28E agreements to eliminate extraterritorial subdivision review conflicts by
creating an agreed upon set of subdivision regulations to be used in the ETJ overlap zone. Communities
can also establish a boundary that delineates areas where each community has subdivision review
authority. A subdivision review agreement can be done as part of an annexation agreement or as a
standalone agreement.
Annexation and subdivision review agreements can avoid conflicts and can help expedite the subdivision
approval process by eliminating the need for ad hoc negotiations between cities. Agreements between
cities will also make the subdivision review process easier for the county. Subdividers will know which
city's regulations they will need to meet based on a map with clearly defined annexation and subdivision
areas. Overall, the agreements can provide added clarity and predictability to the land development
process.
Development Codes
Zoning, subdivision, and building codes, or development codes, are important tools that provide
communities with the opportunity to establish land use patterns that are logical, orderly, attractive, and
convenient. Carefully planned and thoughtfully developed communities are instantly recognizable, as
private investment is encouraged and protected in such environments. Similarly, public resources can be
expanded more efficiently as a result of sound planning enforced by effective development codes.
Development codes will be a key part of the implementation of the Smart Plan. Implementation
through development codes is vital because as a comprehensive plan, the Smart Plan on its own has no
legal authority.
7
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration
Currently zoning, subdivision, and building codes and the process required to comply with these codes
vary greatly across municipalities within Dubuque County. Differences in these development codes can
be very confusing for builders and developers, and can also promote urban sprawl by allowing
developers to leapfrog into unincorporated areas with less restrictions on development.
Regional implementation of development codes can address some of these issues. While the codes and
processes are different, the intent behind most of them is very similar. If the cities and the county adopt
similar development codes, local governments will be on an equal playing field, which will limit instances
of development jumping into rural areas to avoid regulation. Regional code implementation will also
encourage new economic development by reducing the complexity of subdividing and building in
Dubuque County by establishing similar codes across the county. Development codes can benefit
smaller communities that do not have the means to administer and enforce a code. Smaller
communities with similar codes could pool their resources to share the burden of code compliance.
8
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration Goals and Objectives
1. Improve relationships among local governments within the region by strengthening
communication and identifying opportunities for sharing information.
1.1. Promote better understanding among all levels of government on the roles and responsibilities
of each.
1.2. Formally invite groups, agencies, or entities to public meetings where the topics discussed are
of known importance to the invitee.
1.3. Encourage communities to become /remain active on regional committees and boards.
1.4. Encourage communities to communicate development proposal details to surrounding
jurisdictions on a timely basis.
2. Reduce land use conflicts between neighboring jurisdictions including issues concerning
annexations, urban and rural development, code compliance, and fringe area development.
2.1. Establish fringe area development agreements to resolve conflicts between cities and the
county.
2.2. Establish fringe area development agreements to resolve conflicts between adjacent cities.
2.3. Encourage local governments to adopt a rural model smart code that will promote consistency
of development.
2.4. Encourage cooperative land use polices that protect agricultural land and open space and
allow for cost effective service delivery by encouraging new development to locate within
existing cities and established urban fringe areas.
3. Encourage Dubuque County communities to coordinate economic development efforts.
3.1. Coordinate regional promotion of local tourist attractions.
3.2. Coordinate local business recruitment and retention activities on a regional scale.
3.3. Cooperate with local educational institutions to coordinate training /skill requirements to meet
the needs of local employers.
3.4. Plan for new and maintain housing, transportation, communication, and utility systems to
foster walkable cities and promote economic development.
3.5. Develop regional strategy to provide adequate supply of vacant, development -ready land for
residential, commercial, and industrial use in each community.
3.6. Cooperate with businesses, educational institutions, community organizations, and
governments to provide information to local businesses.
1
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration Goals and Objectives
3.7. Plan and promote multijurisdictional economic development projects that foster cooperation
instead of competition.
4. Encourage Dubuque County communities to coordinate the planning, programming, and use of
personnel, equipment, services, facilities, and infrastructure.
4.1. Cooperate with businesses, educational institutions, community organizations, and
governments to identify and pursue federal, state, and private funding to help accomplish
region -wide goals.
4.2. Encourage development to locate within existing cities and establish urban fringe areas where
adequate public utilities are planned or can be provided.
4.3. Promote the integration of sound, affordable housing throughout the region.
4.4. Encourage local government participation in school district site selection and facilities planning
efforts.
4.5. Continue to work with DMATS, RPAB, and Iowa DOT to plan for transportation infrastructure
expansion and maintenance.
4.6. Encourage intergovernmental coordination when selecting sites for community facilities, such
as police stations, fire stations, administration buildings, libraries, hospitals, and schools.
5. Coordinate regional agriculture and natural resource protection efforts.
5.1. Cooperate on regional stormwater management planning, education, and enforcement of
stormwater and erosion control ordinances.
5.2. Coordinate regional efforts to improve air quality by reducing emissions from both point and
nonpoint sources .
5.3. Promote the protection, preservation, and enhancement of the region's bluffs, prairies,
wetlands, waterways, scenic views, vegetation, wildlife, and all natural areas.
5.4. Promote watershed planning to improve water quality and mitigate flooding.
S.S. Preserve prime agricultural land using infill developmetn, brownfield redevelopment, and
sensible agriculture preservation policies.
6. Continue the dialog on comprehensive planning, land use regulation, and boundary issues
between local governments in Dubuque County.
6.1. Work cooperatively with local municipalities to make revisions to zoning, subdivision, building,
and other municipal codes to implement the recommendations of the Smart Plan.
2
DUBUQUE COUNTY SMART PLAN
Intergovernmental Collaboration Goals and Objectives
6.2. Continue regular meetings of the Dubuque Smart Planning Consortium after the completion of
the Smart Plan.
6.3. Review Smart Plan bi- annually and update the plan in a timely manner.
3
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
Input Process
The Consortium held a series of 24 public input meetings to collect public input for the Dubuque County
Smart Plan. The Consortium hosted an initial planning kickoff meeting in February 2011. Individual
communities held workshops in December 2011, August 2012, and September 2012. The Consortium
held a final wrap up meeting in October 2012. At the workshop, community members were asked to
describe things they liked about their community and things they would like to see changed in the
future. The Consortium used the information collected through the public input process to create a list
of strengths, issues, and opportunities for the community. The Consortium then refined the list of issues
and opportunities down into one unified vision for the region and created goals and objectives for each
chapter based on that vision.
Agriculture and Natural Resources
Strengths — Dubuque's location in the Driftless Area of the Mississippi River Basin provides a
beautiful region of diverse topography, soils, and ecosystems. Rugged terrain limits agriculture in
the eastern half of the county; however, the western half of the county has flatter land and high
quality agricultural soils. Through the public input process, many participants listed the natural
beauty of the region as a primary reason for living in Dubuque County.
Issues — Dubuque County is home to a variety of natural features that make it unique in the State of
Iowa. New development can put increased pressure on these valuable natural resources. In recent
years, air quality has become a concern for Dubuque County communities. The region currently
meets the Federal clean air criteria, but the region's air quality is approaching non - attainment levels.
Water quality has also been a concern in Dubuque County. Extensive monitoring in the Catfish
Creek Watershed has shown elevated levels of bacteria, nitrates, and chloride. If the current trends
in air and water quality are not reversed, both could pose a serious threat to quality of life in the
future.
Opportunities —The residents of the region have the opportunity to establish the policies that will
insure that future generations will be able to enjoy the County's valuable natural features.
Communities should encourage the creation of a sustainable environment that balances agricultural
and urban growth and development, with ecological constraints.
Community Character
Strengths - Many residents who spoke at the public meetings listed the small town atmosphere and
the closeness of the people in the community as one of the things they liked about their town. This
was true even in the City of Dubuque where residents enjoy the small town atmosphere despite
living in a city with a population of almost 60,000. Residents described their fellow community
members as friendly, caring, willing to lend a hand, and committed volunteers. Residents
participating in the planning process placed a high value on downtown areas, historic buildings, and
the County's agricultural roots.
1
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
Issues - Some communities see new development as a threat to the character of their community.
Development on agricultural land, forestland, and the Mississippi River bluff lands can alter the
landscapes that are enjoyed by many. Some communities saw their downtown as a strength while
others felt their downtown could use some improvement. In general, many residents wanted to
see an increase in activity in the downtown area with more businesses, more people out on the
street, and more activities.
Opportunities - Communities feel that preserving and enhancing the character of their community
should be a top priority in the future. New development in the community should respect and
preserve the existing community character. Many residents would like to see policies focused on
enhancing downtown for local shopping, dining, and recreation. Many communities would also like
to see policies that preserve the natural and rural agricultural character of the region.
Community Facilities
Strengths — Communities in Dubuque County have a long history of collaborating to provide high
quality community facilities to their residents. Local governments within the region have mutual aid
agreements for fire and police services and both public school districts serve multiple communities.
Coordination between the public and private sector facility providers is also commonplace. Private
entities in Dubuque County provide education, emergency medical services, hospital services, and
childcare facilities.
Issues - Dubuque County school districts, law enforcement and fire protection agencies, and parks
managers provide high quality opportunities and services to their communities. As the region's
population grows, maintaining adequate capacity will challenge providers of local facilities. The
communities of Dubuque County should promote quality community facilities by coordinating
development decisions and providing adequate facility capacity.
Opportunities —Smart Planning Consortium members have the opportunity to provide high quality
community facilities by maintaining the existing intergovernmental and public - private facilities
relationships, and looking for areas to establish new relationships.
Economic Development
Strengths — Manufacturing is a strong industry in Dubuque County, employing 16% of the
workforce. The region is home to several large manufacturers including John Deere. These
companies employ thousands of workers and are an important part of the regional economy.
Business services is also a strong employment sector in the region. The business and professional
services sector provides needed services such as consulting, processing, legal, management support,
etc. to all of the other industries in the region. Tourism has remained strong in the region and will
continue to be a priority with the National Mississippi River Museum and Aquarium, the Grand River
Center, the Field of Dreams, the National Farm Toy Museum, Sundown Mountain, and Heritage
Trail.
2
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
Issues - Many residents see a shortage of high quality jobs in their communities. While the region's
manufacturing base is strong it has declined significantly over the last 50 years. The Dubuque
County regional economy faces a future shortage of skilled workers because of retirements. As the
baby boomer generation begins to retire, employers in Dubuque County will be forced to replace
and train thousands of skilled workers. Finding new employees with the required education and
training will be a top priority for the region's employers. Natural disasters have also been a major
issue for the region's businesses. Flooding in 2008, 2010, and 2011, and a severe drought in 2012
have negatively impacted businesses in the region.
Opportunities — Dubuque County communities have the opportunity to implement programs and
policies to attract a diverse set of new employers to the community. Local governments can invest
in infrastructure, promote workforce education, and strengthen business development programs to
stimulate expansion in all industrial sectors. The Dubuque County region has the opportunity to
expand on a well established tourism industry. The communities of Dubuque County can work
together to promote regional tourism which could bring more people and dollars into the area.
Hazard Mitigation
Strengths — In recent years Dubuque County has been impacted by several natural disasters. The
region has used the lessons learned from our recent experiences to improve hazard mitigation and
preparedness activities. Communities in the county have worked together to rebuild, recover, and
plan for the future. The County has adopted a multi - jurisdictional hazard mitigation plan that will
guide future hazard mitigation activities in the coming years.
Issues - Over the past several years Dubuque County has sustained heavy damage from natural
disasters. Flooding in 2008, 2010, and 2011 and a severe drought in 2012 disrupted everyday life
and caused millions of dollars in damage to businesses, agricultural operations, and local
infrastructure.
Opportunities — Communities in Dubuque County need to make use of the time between natural
disasters to plan and make their communities more resilient to hazards. Implementing building
codes to prevent property damage from winter storms and severe storms, stormwater management
practices to limit flooding, and improving buildings and infrastructure are examples of things
communities can do to improve resiliency to hazards.
Housing
Strengths — Housing is an important asset for Dubuque County residents and local governments.
The Dubuque County housing market, like many in the Midwest, has remained relatively stable
during the recession. Dubuque County was largely left out of the housing price boom of the 2000's,
but it also did not experience a crash when prices adjusted during the recession. The area is also an
affordable place to buy a home. The majority of homeowners in Dubuque County pay less than 30%
of their income towards housing. The region has established programs to assist those who do not
3
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
have affordable housing. The City of Dubuque Housing and Community Development Department
and the Eastern Iowa Regional Housing Authority manage public housing, rental assistance, and
other housing programs within the region.
Issues —Owner occupied housing in Dubuque County is relatively affordable when compared to the
rest of the United States, but housing affordability is an issue for those who rent in the county. 48%
of renters pay more than 30% of their income towards housing. Combined transportation and
housing costs are also an issue in Dubuque County. Some people consider living in rural areas
because of lower home prices, but in these areas the distance between home, work, school and
other daily needs is greater. Using a combined transportation and housing cost measure, 29% of
county households meet the affordability threshold, compared with 75% using the housing only
measure.
Opportunities - Dubuque County communities can work together to address housing issues in their
community. Working together with the private sector, nonprofit, and other government agencies
communities in Dubuque County can ensure a diverse and affordable housing supply throughout the
region. Communities can update polices to allow for more affordable housing and reduce
transportation costs. Communities can also introduce programs that encourage improved
relationships between tenants and landlords.
Intergovernmental Coordination
Strengths - Historically, the communities in Dubuque County have a good working relationship.
Dubuque County communities are able to cooperate to complete projects of mutual interest.
Communities also work together to share information, resources, and are active in several regional
organizations. The communities of Dubuque County have demonstrated a strong commitment to
intergovernmental coordination by participating in the Smart Planning Consortium.
Issues - Dubuque County communities work together to provide the best services possible to their
citizens; however, conflicts between communities have arisen in the past. Conflicts over land
development and annexations have occurred between cities and Dubuque County in various ways
and intensities. While these conflicts do not occur very often, it is important for communities to
work together to find an agreeable solution for all sides.
Opportunities - Coordination between local governments is an important issue that was identified
through the planning process. Community leaders have found that they can achieve their goals by
cooperating instead of competing with their neighbors. Economic development, agricultural and
natural resource protection, and hazard mitigation are some of the areas where communities can
work together to achieve common goals.
Land Use
Strengths —The period following the 1980s recession was one of recovery and growth for the
Dubuque County economy. Between 1990 and 2007, the County saw a growing population,
4
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
diversification of industry, and increasing employment. Beginning in 2007, the global economic
recession slowed growth, but the local economy has remained relatively stable through the
recession. Economic growth and investments in transportation infrastructure during this period
lead to the physical . expansion of the County's communities.
Issues —The pattern in which new development has occurred has led to some issues for Dubuque
County communities. For example, new commercial development has, in some cases, come at the
expense of established downtowns. Rural residential development has consumed valuable natural
and agricultural land, increased traffic on rural roads, and led to an increased number of septic
systems which come with the potential for contaminated water.
Opportunities — Urban sprawl has been an issue that has been around since the first Dubuque
County Land Use Plan in 1969. The communities of Dubuque County will need to develop policies
and ordinances to address these important land use issues while encouraging needed economic
development. Communities can use tools such as form -based codes, mixed use development, and
conservation subdivisions to provide adequate land for new development while controlling sprawl,
protecting the natural environment, and preserving the character of the region.
Public Infrastructure and Utilities
Strengths — Dubuque County communities have worked together with public and private partners to
provide excellent water distribution, wastewater collection and treatment, solid waste and
recycling, telecommunications, and electrical services to serve their expanding populations. Many
of those who participated in the community workshops for the Smart Plan stated that they were
satisfied with their utility services.
Issues — Growth over the past several years has caused some growing pains for the County's
infrastructure and utility providers. Between 1990 and 2010, Dubuque's population began to
decentralize, relocating from the City of Dubuque to the smaller cities and the unincorporated rural
areas of the county. The pace of the decentralization has accelerated within the last ten years, and
the new development tends to be lower density than development from previous years. The spatial
population shift of the past 20 years has resulted in expansion of public and private infrastructure
within previously undeveloped areas of the County and has left behind underutilized infrastructure
in some historically developed areas. The low- density nature of new development has increased the
cost of providing service to these newly developed areas.
Opportunities - Effective land use and utility planning are especially important during uncertain
economic times. During hard economic times, communities need to "do more with less." In other
words, the community needs to get more out of the investments it makes, or improve its return on
investment. Communities invest in many things, but utility infrastructure is one of the largest and
most important investments a community will make. Communities invest in the installation and
maintenance of infrastructure to stimulate private sector investment and development, which
creates value in the local economy. The value created is taxed and the tax revenue is used in part to
5
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
pay for the maintenance of the infrastructure. Dubuque County communities can implement
infrastructure and land use policies such as controlling urban sprawl and encouraging growth in or
near cities to help them provide services efficiently, create economic value, and maximize the return
on the community's investment.
Transportation
Strengths — Most city residents were happy with the conditions of their local streets. Several stated
that they felt their local governments do a good job of performing routine street maintenance and
keeping streets passable during the winter months. In the smaller towns residents listed the ability
to live in a small town and commute to Dubuque for work, shopping, and recreation as a primary
benefit of living in their town. Meeting participants also listed the region's bicycle and pedestrian
trails as a major asset for the region.
Issues - Transportation is a very important issue for many Dubuque County residents. Changing
development patterns in the County have resulted in increased vehicle traffic on the region's roads,
as many local residents live in one community and commute to another for work. Increasing traffic
is projected to result in congestion and safety issues in the coming years. Safety issues were at the
top of the list for future transportation projects. Safety on US 20 was a major concern. At -grade
intersections along US 20 have seen several accidents and fatalities over the past several years. The
condition of rural roads and bridges was also a major concern for county residents. New
development in rural areas has increased traffic on roads and bridges that were designed for low
traffic rural use. Changing demographics also present a transportation issues for the residents of
Dubuque County. With an aging population, those who are unable to drive are expected to make up
a larger percentage of the population in the future. The underlying challenge with all of these issues
is funding. Dubuque County communities will need to find ways to make necessary improvements
using available funding.
Opportunities — Dubuque County communities see an opportunity to improve the transportation
network to provide connectivity to moth areas of the county, provide mobility to more county
residents, and encourage more economic development opportunities. Residents would like a multi -
modal transportation system where they are able to walk, fide their bike, or take public transit from
their home to their destination without using a car. Communities along the Heritage Trail would like
to expand on the trail's recreation and economic impact within the region. Communities can
implement policies that maximize the return on transportation funds. Mixed use development and
complete streets are two of the tools that communities can use to help get the most out of their
limited transportation funds.
Watershed Planning
Strengths - Dubuque County recently adopted erosion control and stormwater ordinances that aim
to reduce flooding and protect water quality. The erosion ordinance requires developers to obtain a
permit and install erosion control practices on a jobsite during construction. The stormwater
6
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
ordinance requires developers to install stormwater mitigation practices that will reduce the
amount of runoff from the completed development. The idea behind the ordinance is to help reduce
the impact of new development on flooding and water quality. Developers may choose from a
variety of options to control storm water. In addition to Dubuque County, several cities in the region
have adopted or are considering similar ordinances.
Issues — Flooding has been a major issue for Dubuque County. Major flood events in 2008, 2010,
and 2011 disrupted everyday life and caused millions of dollars in damage to businesses, agricultural
operations, and local infrastructure. Many community leaders and residents sought improvements
to stormwater mitigation, water quality, and flood control.
Opportunities - Understanding the importance of land use planning, the impacts of infiltration
based practices, and developing site specific boundaries of non -point source pollution within a
watershed will lead to improvements in our local watersheds. Communities can help improve local
watersheds by implementing policies that identify and avoid sensitive areas, minimize impervious
surfaces, and implement stormwater best management practices. Communities need to work
together to repair the damage done to in- stream habitat and reduce the rate and volume of
stormwater flow using infiltration based practices.
Vision
Dubuque County comprises a diverse group of communities, each defined by a unique heritage. The
goal of the Dubuque County Smart Plan is to improve the quality of life for all the region's residents by
working together to identify each community's strengths, and employing those strengths to create a
long -term plan for a more sustainable region.
The communities of Dubuque County have united to form a consortium to create and maintain a
regional plan for sustainable development. The Dubuque County Smart Plan will guide future
sustainable development in the region by incorporating the following sustainability elements and
principles.
Elements
Public Participation
Issues and Opportunities
Land Use
Housing
Public Infrastructure and Utilities
Transportation
Economic Development
Agricultural and Natural Resources
Community Facilities
Community Character
Hazards
Intergovernmental Collaboration
Implementation
7
Principles
Collaboration
Efficiency, Transparency, and Consistency
Clean, Renewable, and Efficient Energy
Occupational Diversity
Revitalization
Housing Diversity
Community Character
Natural Resources and Agricultural Protection
Sustainable Design
Transportation Diversity
DUBUQUE COUNTY SMART PLAN
Issues and Opportunities
Watershed Planning
Goals and Objectives.
Each chapter of the Smart Plan is based on one of the Smart Planning Elements. Each chapter provides a
discussion of the element followed by a list of goals and objectives that apply to the element. The Smart
Planning Consortium has produced a list of goals and objectives for each of the Smart Plan chapters
based on input from the member communities and the public participation process. In the final chapter,
Implementation, the Consortium provides a list of policies and projects that once implemented, will help
the communities of Dubuque County achieve the goals and objectives set forth in this regional plan for
sustainable development.
8
DUBUQUE COUNTY SMART PLAN
Community Character
Dubuque County
The area that is now the State of Iowa was included as part of the Michigan Territory in 1834. When a
portion of the Michigan Territory was admitted to the Union as a state in 1836 the rest was set aside as
the Wisconsin Territory, which included all of what is known as the State of Iowa. Iowa was originally
two counties, Demoine County and Dubuque County. In 1837, during the second session of the
Wisconsin Territorial Legislature, Dubuque County was subdivided into 14 other counties: Benton,
Buchanan, Cedar, Clayton, Clinton, Delaware, Fayette, Jackson, Johnson, Jones, Keokuk, Linn, Scott and
Dubuque. Dubuque County contains land area of 612 square miles which includes the City of Dubuque
as the largest of 21 cities in the County and which serves as the county seat.
The first official meeting of the Dubuque County Board of Supervisors was held on May 13, 1836. The
first courthouse building was made of logs and was completed October 1, 1836. It was intended to be
used as a courthouse however, it was never used for that purpose but as a jail instead. The present
courthouse was completed in 1893 and is still used as the main county office building today.
In 1838, Dubuque County had 2,381 inhabitants, by 1856 that had risen to 26,871. Dubuque County has
experienced some hard economic times in which the population dropped from 93,745 in 1990 to 86,403
in 1980 a drop of -7.8%. The steep drop was due in part to the sale of Dubuque Packing Co. and its
ultimate closure and the farm crisis which caused the reduced demand for equipment at John Deere
Dubuque Works. However with the expansion of tourism /gaming, and a more diversified industrial and
business sector, we have seen growth in employment and population over the last 20 years. Dubuque
County has recovered and now has a population close to that of the 1990's of 93,653.
Dubuque County Comprehensive Plan and Vision Statement
Dubuque County's Comprehensive Plan was adopted on September 23, 2002 along with a Future Land
Use Development Map. This Plan is currently being amended and updated through the Dubuque County
Smart Planning Consortium to meet the needs of our growing communities. The regional Plan for the
County will focus on preservation of farm land and rural character, managing growth around and
adjacent to the cities and building a more sustainable region by incorporating the smart growth
principles into our Comprehensive Plan and development codes.
Dubuque County has a vision of what it aspires to be, which improves the success of long -range
planning. This brief statement summarizes the County's collective vision of an ideal future, a future that
relies on cooperative efforts to retain valued assets and enhance the quality of life for all residents.
Dubuque County Residents will work together to maintain a sound, safe environment with a prosperous
farm sector and thriving communities which contribute to a diverse economic base where families and
young adults will retain and earn a living wage while enjoying modern educational facilities, and a
variety of cultural and recreational opportunities. Dubuque County will enjoy moderate, planned
growth that preserves the rural life style and scenic character of the area while supporting renovation of
older urban areas, affordable housing and improved transportation systems.
Dubuque County is managed by three elected representatives to the Board of Supervisors. The County
has a budget of $62,000,00 for 2012 and more than 368 full time employees. The County provides
DUBUQUE COUNTY SMART PLAN
Community Character
valuable services to all the residents of Dubuque County from the following departments: City & County
Assessor, County Auditor, County Conservation, County Attorney, County Library, Mental Health &
Developmental Disabilities (MH /DD), Emergency Management & General Relief, County Health,
Personnel, County Recorder, Secondary Roads, Sheriff, Sunnycrest Manor, County Supervisors, County
Treasurer, Veteran's Affairs and County Zoning Department.
Asbury
The city of Asbury once was called the "tiniest town in the state" with a population of 27 people and
was incorporated on September 7, 1933 after the repeal of prohibition, in order to have legalization of
beer sales. The initial settling of the community was principally by Methodists who named the
community after Bishop Francis Asbury, the first Methodist Bishop in America. The towns earliest roots
are remembered as a village when farmers would travel to have their horses shod, visit the general store
and local tavern. There were two churches, the Asbury Methodist Church and St. Philamena's Catholic
Church and a one room schoolhouse. The incorporated city limits consisted of approximately eleven
acres.
The community now has grown to a population of 4,357, expands an area over three miles and is the
second largest city in Dubuque county. It still remains true to its humble beginnings as a residential
community. Asbury has the feel of being close to everything — school, work, recreation and church. The
City in the last fifteen years has added ten subdivision developments, two commercial developments
(Asbury Mall and Saratoga Plaza), expanded the park and recreational opportunities for residents (new
park property, resurface multipurpose courts, county library site, and purchase of Meadows Golf Club)
and improved the utility services provided to residents (water tower, upgrades to wells and upgrade to
wastewater treatment plant). Asbury Road continues to be the backbone for transportation through the
community. Other major roads to service the community include Seippel Road, Radford Road and Hales
Mill Road.
The City has set its direction to maintain a high quality community where people live, learn, grow, work
and play —the kind of place that people want to call home.
Dubuque
Iowa's oldest city, Dubuque was established in 1833 on the bluffs of the Mississippi River. Settled in
1788 by French Canadian fur trader and early entrepreneur Julien Dubuque, this has been a vibrant river
city since the early 1800s. Historically known for button making, boat building and logging, today
Dubuque is a thriving city, known for its riverboat excursions, tourism, gambling and recreation.
Dubuque serves as the major retail, medical, education and employment center for an estimated
250,000 people in the tri -state area. The community has a stable and diversified manufacturing base, a
growing service sector, and a significant increase in technology based companies. Dubuque also has key
employment in publishing, health care, tourism and education.
In the early 1900s, most of Dubuque was located below the bluffs in the historic floodplain of the
Mississippi River. This development pattern did not substantially change until the 1950s and 1960s,
when westward expansion for industry, commercial and residential development continued until the
1980s. The community then worked to expand and diversify its local economy with new transportation
DUBUQUE COUNTY SMART PLAN
Community Character
and communication connections. During the 1990s, local industries were relocated to new industrial
parks and new residential developments began on the south and west ends. With construction of the
Northwest Arterial (Highway 32) the new commercial retail center shifted further west. Dubuque's
riverfront was dramatically transformed from industrial brownfields to the 90 -acre campus of the
America's River Project. Dubuque annexed thousands of acres to provide opportunities for additional
residential, commercial and industrial growth. There also has been a continuing trend of redevelopment
in the downtown and surrounding commercial and residential areas, such as the Washington and North
End Neighborhoods and the historic Dubuque Millwork District.
The Dubuque 2026 Vision Statement
The city of Dubuque is a progressive, sustainable city with a strong diversified economy and expanding
global connections; the Dubuque community is an inclusive community celebrating culture and heritage
and has actively preserved our Masterpiece on the Mississippi; Dubuque citizens experience healthy
living and active retirement through quality, livable neighborhoods and an abundance of fun things to
do and they are engaged in the community, achieving goals through partnerships; and Dubuque City
government is financially sound and providing services with citizens getting value for their tax dollars.
Mission Statement
The City's mission is to deliver excellent municipal services that support urban living, and contribute to a
sustainable city. The City plans for the community's future, and facilitates access to critical human
services. The result is a financially sound city government and citizens getting services and value for their
tax dollar.
Dubuque has a city manager form of government, with the City Manager reporting to the Mayor and
City Council. The City's annual operating and capital budget is over $181 million and funds a full range of
municipal services. The City has more than 680 FTE employees. The City of Dubuque provides public
safety, public works, health, engineering, cultural, recreation, community development, housing,
planning, zoning, inspection, community and economic development services to its citizens. The City
provides water, sanitary sewer, storm sewer, solid waste collection, parking, transit, civic center,
convention center, golf course, parks, pools, trails, cable TV programming, public library and airport
operations. The City operates the sanitary landfill with Dubuque County. The City's web site is
www.cityofdubuque.org.
Epworth
Population: 2010 Census 1,860. Epworth is located in the center of Dubuque County about fourteen
miles west of the Dubuque and ten miles east of Dyersville on US Highway 20
History: The first white settlement in the vicinity of Epworth came around 1837, although little actual
growth was experienced until the surveying of the railroad in 1855. The first local industry, a brick
manufacturer, was established in 1854. Other shops and trade stores soon followed that were
DUBUQUE COUNTY SMART PLAN
Community Character
appropriate for the times. After some rough times early on and the pressures of the civil war, Epworth
became an incorporated town of record in 1880. Prosperity and renewed growth emerged. Churches
and schools were the focal point for the community. Community services and facilities followed
including a telephone system and seminary additions. By 1900, the town's population had risen to 550.
Fire plagued the town in the first two decades of the 20th century and most of the downtown had to be
rebuilt after disasters in 1903 and 1911. This created considerable interest in the necessity for a
community wide water system and the organization of the volunteer fire department. Effects of
national and international events over the next 30 years influenced Epworth similar to other
communities. The population stabilized, economic and manufacturing activity survived or flourished
and, over time, further community services were added. Since mid- 1960's the construction of housing
has provided growth for the community. Its regional location to Dyersville and Dubuque has made
Epworth a supportive community to the industrial activity of those areas.
Character: With numerous small businesses and a new development area, Epworth is poised for
additional growth. The Epworth Fire Department is prided on training and advanced equipment for fire
suppression and the highest level of pre - hospital care. The Epworth area enjoys a class 4 insurance
rating which results in lower insurance rates. Volunteers and their remarkable efforts position the City
as the place to live. Epworth offers a variety of opportunities, where church, social and civic activities
intermix to give residents a basic sense of belonging and working together for their common benefit.
Our Gateway Center was built in year 2000 as a landmark to the spirit and pride of our community and
its founders. It is a symbol of unity of people of all faiths and all ages, and we hope that it welcomes you
to our community.
Vision: The City of Epworth, its citizens, and its stakeholders envision a community that continues to
build upon its strengths and leverage those strengths to branch out. Our community continues to
provide an atmosphere conducive to a wide variety people's living styles —from young individuals
starting out, families, and retired persons. This atmosphere includes attractive parks, walking and biking
trails, abundant recreational and cultural opportunities, a strong school system, well- maintained streets
and infrastructure, exceptional fire and police protection, and abundant, quality housing. The business
community in Epworth is growing, offers employment opportunities for the community, and serves to
compliment the community's atmosphere. City government is cognizant of the varying needs of
residents and businesses alike, in addition to being financially sound. Epworth is a community where
people will seek to live, work, and operate a business because of its atmosphere and opportunities.
Farley
Farley is located in the western half of Dubuque County along Highway 20. Like many communities
across the country, Farley can trace its humble beginnings to the construction of a railroad line through
the area. At the point where the Dubuque Southwestern Railroad met the Dubuque and Pacific road, a
depot was built in the late 1850's. A town was platted, property purchased and businesses began to
spring up. By the time the town became incorporated in 1879, 129 settlers called Farley their home.
Today Farley is home to 1550 residents.
DUBUQUE COUNTY SMART PLAN
Community Character
Transportation played an important role in the city's history and still does today. Many residents built
homes and raised families in Farley, traveling to nearby Dubuque or Dyersville for employment or
shopping. More recently, the city's industrial base has thrived, with manufacturers taking advantage of
Farley's unique proximity to a four -lane highway and the CNN Railroad.
Volunteers play a critical role in Farley's success —from our park board, to the Farley Development
Corporation, fire and ambulance, to our Farley Garden Club whose members beautify Farley with a
multitude flower plantings every year. Through the strong sense of community spirit and volunteer
efforts by its citizens, as well as a proactive vision by community leaders, Farley has enjoyed smart,
balanced growth and is poised for even greater prosperity in the future.
A strong relationship between the Farley Development Corporation, local entrepreneurs and the city,
contributed to the steady growth of Farley's two industrial parks -- -with employment topping more than
300. Achieving a balance between commercial and residential growth became a reality with the,
development of the Southlake subdivision in the late 1990's. Since its inception, more than 70 new
homes have been built to date
Quality of life and recreational opportunities have always served as a source of pride in Farley. The city
park includes four ball fields, including the home fields for the Western Dubuque Bobcat boys' and girls'
baseball and softball teams. It also features two large shelters and four small ones, plenty of room for
family reunions and gatherings. Lots of trees and playground equipment including tennis, basketball,
volleyball and horseshoes are close by. Our Westside park boasts of playground equipment and picnic
facilities. For the bicycle enthusiast, we have a new %: mile bike lane on the road leading north out of
town, connecting to the 26 -mile Heritage Trail.
The Farley Memorial Hall was built in 1939 during the Great Depression using the New Deal's Work
Projects Administration (WPA) funding. This two -story community center features a dance floor and
stage upstairs and a kitchen - reception area downstairs. It holds more than 500 people and has served as
the center of family and organizational gatherings for generations. Also downtown, you can dine out at
four different places.
In the summer time, besides baseball and softball, one can hear the sounds of the stock cars at the
Farley Speedway on Friday nights. This dirt track draws fans from all around eastern Iowa. The raceway
grounds are also home to the Palace Ballroom, an additional venue to host family celebrations or
business events.
Farley serves as the home for both the Seton Catholic middle school, Western Dubuque Schools public
preK -4 elementary and middle school. Drexler Middle School recently completed a major remodeling,
which included an addition of a new gymnasium, and the Dubuque County Library that serves the
School, City and County.
The community's connection to agriculture has always been strong and is the home of an implement
dealer, feed store, grain elevator, veterinary services and tire repair.
DUBUQUE COUNTY SMART PLAN
Community Character
Through 2011, the city invested more than $8 million in infrastructure projects over the previous ten
years, including a new waste water treatment plant, a second water tower, reconstruction of First
Avenue and First Street, plus the purchase and remodeling of city offices and maintenance shop.
DUBUQUE COUNTY SMART PLAN
Community Character
1. Invest in existing places such as downtowns, infrastructure, neighborhoods, and places that the
community values.
1.1. Prioritize funding for repair and maintenance of existing infrastructure before building new.
1.2. Encourage economic development in existing downtowns.
1.3. Rehabilitate existing buildings in a way that preserves their historic significance while meeting
modern needs such as office space, retail, or apartments.
1.4. Encourage private sector investment by providing incentives for infill development.
2. Create great new places in areas that are designated for new development.
2.1. Identify designated growth areas that the community sees as best suited for new development.
2.2. Consider design guidelines that preserve distinctive local character in new development.
2.3. Consider polices that promote the development of compact, walkable, mixed -use places.
2.4. Plan for new parks and open spaces to serve new development.
2.5. Encourage developers to build great places by using smart growth and green building
approaches.
3. Preserve the agricultural natural character of the region.
3.1. Develop land and economic development strategies that preserve working farms, natural
landscapes, and scenic vistas that represent a community's character.
3.2. Encourage land use policies and regulations that do not hamper family farm operations.
3.3. Promote rural products in urban areas through buy local campaigns and farmers' markets.
4. Safeguard the cultural and historic resources of each community as critical to the quality of life
and the attractiveness of the region.
4.1. Promote the preservation of historic buildings and architectural resources with emphasis in
areas of greatest need.
4.2. Encourage educating the community about the benefits of historic preservation to quality of
life, economic development efforts, tourism, and tax base enhancement.
4.3. Encourage exploration, preservation, and interpretation for present and future generations, the
history of the region's communities and the Mississippi River.
4.4. Promote increased appreciation, education, technical assistance, and funding to preserve
historical, architectural, and archeological heritage.
4.5. Encourage the development of a marketing plan for the cultural and historic resources in the
region.
4.6. Identify the location of existing historical and archeological in order to buffer nearby future
development if necessary, to preserve the character of a site.
4.7. Consider development regulations that will protect significant undiscovered archaeological site,
such as ancient burial mounds, from disruption.
Dubuque ,Regional
Smart Planning
PUBLIC A1VNOUNCYE ANNOUNCE / ,NT
ECIA & the Smart Planning Consortium 1vhich includes:
Dubuque County, City of Asbury
City of Cascade, City of Dubuque
City of Dyersville, City of Epworth
City of Farley, City of Peosta
and the Soil & Water Conservation District (SWCD)
invite members of the community to participate in a public input meeting to be held
October 10, 2012 at 6 :00 p.m.
at the Fire Training Facility
14928 Public Safety Way
Dubuque, IA 52002
There will be a light meal served at 6 :00 p.m.
with an insightful presentation to begin at 7:00 p.m.
We will be reviewing the final draft of the Dubuque County Smart Plan and
soliciting public input on future implementation strategies for sustainability
throughout the county.
You are welcome to coine and be a part of a unique project that we hope will make
a lasting impact on Our communities.
For more information, and to RSVP your attendance for the meal, please contact
Anna O'Shea, Dubuque County Zoning Administrator at (563) 589 -7827
or Dan Fox, Transportation Planner at ECIA at (563) 556 -4166.
You can also obtain additional information on this project at
tvww.d ubuqucsniari plan.org